An appalling calamity has befallen the American people since their chosen representatives last met in the halls where you are now assembled. We might else recall with unalloyed content the rare prosperity with which throughout the year the nation has been blessed. Its harvests have been plenteous; its varied industries have thriven; the health of its people has been preserved; it has maintained with foreign governments the undisturbed relations of amity and peace. For these manifestations of His favor we owe to Him who holds our destiny in His hands the tribute of our grateful devotion. To that mysterious exercise of His will which has taken from us the loved and illustrious citizen who was but lately the head of the nation we bow in sorrow and submission. The memory of his exalted character, of his noble achievements, and of his patriotic life will be treasured forever as a sacred possession of the whole people. The announcement of his death drew from foreign governments and peoples tributes of sympathy and sorrow which history will record as signal tokens of the kinship of nations and the federation of mankind. The feeling of good will between our own Government and that of Great Britain was never more marked than at present. In recognition of this pleasing fact I directed, on the occasion of the late centennial celebration at Yorktown, that a salute be given to the British flag. Save for the correspondence to which I shall refer hereafter in relation to the proposed canal across the Isthmus of Panama, little has occurred worthy of mention in the diplomatic relations of the two countries. Early in the year the Fortune Bay claims were satisfactorily settled by the British Government paying in full the sum of 15,000 pounds, most of which has been already distributed. As the terms of the settlement included compensation for injuries suffered by our fishermen at Aspee Bay, there has been retained from the gross award a sum which is deemed adequate for those claims. The participation of Americans in the exhibitions at Melbourne and Sydney will be approvingly mentioned in the reports of the two exhibitions, soon to be presented to Congress. They will disclose the readiness of our countrymen to make successful competition in distant fields of enterprise. 
Negotiations for an international copyright convention are in hopeful progress. The surrender of Sitting Bull and his forces upon the Canadian frontier has allayed apprehension, although bodies of British Indians still cross the border in quest of sustenance. Upon this subject a correspondence has been opened which promises an adequate understanding. Our troops have orders to avoid meanwhile all collisions with alien Indians. The presence at the Yorktown celebration of representatives of the French Republic and descendants of Lafayette and of his gallant compatriots who were our allies in the Revolution has served to strengthen the spirit of good will which has always existed between the two nations. You will be furnished with the proceedings of the Bimetallic Conference held during the summer at the city of Paris. No accord was reached, but a valuable interchange of views was had, and the conference will next year be renewed. At the Electrical Exhibition and Congress, also held at Paris, this country was creditably represented by eminent specialists, who, in the absence of an appropriation, generously lent their efficient aid at the instance of the State Department. While our exhibitors in this almost distinctively American field of achievement have won several valuable awards, I recommend that Congress provide for the repayment of the personal expenses incurred in the public interest by the honorary commissioners and delegates. No new questions respecting the status of our naturalized citizens in Germany have arisen during the year, and the causes of complaint, especially in Alsace and Lorraine, have practically ceased through the liberal action of the Imperial Government in accepting our often-expressed views on the subject. The application of the treaty of 1868 to the lately acquired Rhenish provinces has received very earnest attention, and a definite and lasting agreement on this point is confidently expected. The participation of the descendants of Baron von Steuben in the Yorktown festivities, and their subsequent reception by their American kinsmen, strikingly evinced the ties of good will which unite the German people and our own. Our intercourse with Spain has been friendly. An agreement concluded in February last fixes a term for the labors of the Spanish and American Claims Commission. The Spanish Government has been requested to pay the late awards of that Commission, and will, it is believed, accede to the request as promptly and courteously as on former occasions. By recent legislation onerous fines have been imposed upon American shipping in Spanish and colonial ports for slight irregularities in manifests. One ease of hardship is specially worthy of attention. The bark Masonic, bound for Japan, entered Manila in distress, and is there sought to be confiscated under Spanish revenue laws for an alleged shortage in her transshipped cargo. Though efforts for her relief have thus far proved unavailing, it is expected that the whole matter will be adjusted in a friendly spirit. The Senate resolutions of condolence on the assassination of the Czar Alexander II were appropriately communicated to the Russian Government, which in turn has expressed its sympathy in our late national bereavement. It is desirable that our cordial relations with Russia should be strengthened by proper engagements assuring to peaceable Americans who visit the Empire the consideration which is due to them as citizens of a friendly state. This is especially needful with respect to American Israelites, whose classification with the native Hebrews has evoked energetic remonstrances from this Government. A supplementary consular agreement with Italy has been sanctioned and proclaimed, which puts at rest conflicts of jurisdiction in the case of crimes on shipboard. Several important international conferences have been held in Italy during the year. At the Geographical Congress of Venice, the Beneficence Congress of Milan, and the Hygienic Congress of Turin this country was represented by delegates from branches of the public service or by private citizens duly accredited in an honorary capacity. It is hoped that Congress will give such prominence to the results of their participation as they may seem to deserve. The abolition of all discriminating duties against such colonial productions of the Dutch East Indies as are imported hither from Holland has been already considered by Congress. I trust that at the present session the matter may be favorably concluded. The insecurity of life and property in many parts of Turkey has given rise to correspondence with the Porte looking particularly to the better protection of American missionaries in the Empire. The condemned murderer of the eminent missionary Dr. Justin W. Parsons has not yet been executed, although this Government has repeatedly demanded that exemplary justice be done. The Swiss Government has again solicited the good offices of our diplomatic and consular agents for the protection of its citizens in countries where it is not itself represented. This request has, within proper limits, been granted. Our agents in Switzerland have been instructed to protest against the conduct of the authorities of certain communes in permitting the emigration to this country of criminals and other objectionable persons. Several such persons, through the cooperation of the commissioners of emigration at New York, have been sent back by the steamers which brought them. A continuance of this course may prove a more effectual remedy than diplomatic remonstrance. Treaties of commerce and navigation and for the regulation of consular privileges have been concluded with Roumania and Servia since their admission into the family of European States. As is natural with contiguous states having like institutions and like aims of advancement and development, the friendship of the United States and Mexico has been constantly maintained. This Government has lost no occasion of encouraging the Mexican Government to a beneficial realization of the mutual advantages which will result from more intimate commercial intercourse and from the opening of the rich interior of Mexico to railway enterprise. I deem it important that means be provided to restrain the lawlessness unfortunately so common on the frontier and to suppress the forays of the reservation Indians on either side of the Rio Grande. The neighboring States of Central America have preserved internal peace, and their outward relations toward us have been those of intimate friendship. There are encouraging signs of their growing disposition to subordinate their local interests to those which are common to them by reason of their geographical relations. The boundary dispute between Guatemala and Mexico has afforded this Government an opportunity to exercise its good offices for preventing a rupture between those States and for procuring a peaceable solution of the question. I cherish strong hope that in view of our relations of amity with both countries our friendly counsels may prevail. A special envoy of Guatemala has brought to me the condolences of his Government and people on the death of President Garfield. The Costa Rican Government lately framed an engagement with Colombia for settling by arbitration the boundary question between those countries, providing that the post of arbitrator should be offered successively to the King of the Belgians, the King of Spain, and the President of the Argentine Confederation. The King of the Belgians has declined to act, but I am not as yet advised of the action of the King of Spain. As we have certain interests in the disputed territory which are protected by our treaty engagements with one of the parties, it is important that the arbitration should not without our consent affect our rights, and this Government has accordingly thought proper to make its views known to the parties to the agreement, as well as to intimate them to the Belgian and Spanish Governments. The questions growing out of the proposed interoceanic waterway across the Isthmus of Panama are of grave national importance. This Government has not been unmindful of the solemn obligations imposed upon it by its compact of 1846 with Colombia, as the independent and sovereign mistress of the territory crossed by the canal, and has sought to render them effective by fresh engagements with the Colombian Republic looking to their practical execution. The negotiations to this end, after they had reached what appeared to be a mutually satisfactory solution here, were met in Colombia by a disavowal of the powers which its envoy had assumed and by a proposal for renewed negotiation on a modified basis. Meanwhile this Government learned that Colombia had proposed to the European powers to join in a guaranty of the neutrality of the proposed Panama canal--a guaranty which would be in direct contravention of our obligation as the sole guarantor of the integrity of Colombian territory and of the neutrality of the canal itself. My lamented predecessor felt it his duty to place before the European powers the reasons which make the prior guaranty of the United States indispensable, and for which the interjection of any foreign guaranty might be regarded as a superfluous and unfriendly act. Foreseeing the probable reliance of the British Government on the provisions of the Clayton-Bulwer treaty of 1850 as affording room for a share in the guaranties which the United States covenanted with Colombia four years before, I have not hesitated to supplement the action of my predecessor by proposing to Her Majesty's Government the modification of that instrument and the abrogation of such clauses thereof as do not comport with the obligations of the United States toward Colombia or with the vital needs of the two friendly parties to the compact. This Government sees with great concern the continuance of the hostile relations between Chile, Bolivia, and Peru. An early peace between these Republics is much to be desired, not only that they may themselves be spared further misery and bloodshed, but because their continued antagonism threatens consequences which are, in my judgment, dangerous to the interests of republican government on this continent and calculated to destroy the best elements of our free and peaceful civilization. As in the present excited condition of popular feeling in these countries there has been serious misapprehension of the position of the United States, and as separate diplomatic intercourse with each through independent ministers is sometimes subject, owing to the want of prompt reciprocal communication, to temporary misunderstanding, I have deemed it judicious at the present time to send a special envoy accredited to all and each of them, and furnished with general instructions which will, I trust, enable him to bring these powers into friendly relations. The Government of Venezuela maintains its attitude of warm friendship and continues with great regularity its payment of the monthly quota of the diplomatic debt. Without suggesting the direction in which Congress should act, I ask its attention to the pending questions affecting the distribution of the sums thus far received. The relations between Venezuela and France growing out of the same debt have been for some time past in an unsatisfactory state, and this Government, as the neighbor and one of the largest creditors of Venezuela, has interposed its influence with the French Government with the view of producing a friendly and honorable adjustment. I regret that the commercial interests between the United States and Brazil, from which great advantages were hoped a year ago, have suffered from the withdrawal of the American lines of communication between the Brazilian ports and our own. Through the efforts of our minister resident at Buenos Ayres and the United States minister at Santiago, a treaty has been concluded between the Argentine Republic and Chile, disposing of the long-pending Patagonian boundary question. It is a matter of congratulation that our Government has been afforded the opportunity of successfully exerting its good influence for the prevention of disagreements between these Republics of the American continent. I am glad to inform you that the treaties lately negotiated with China have been duly ratified on both sides and the exchange made at Peking. Legislation is necessary to carry their provisions into effect. The prompt and friendly spirit with which the Chinese Government, at the request of the United States, conceded the modification of existing treaties should secure careful regard for the interests and susceptibilities of that Government in the enactment of any laws relating to Chinese immigration. Those clauses of the treaties which forbid the participation of citizens or vessels of the United States in the opium trade will doubtless receive your approval. They will attest the sincere interest which our people and Government feel in the commendable efforts of the Chinese Government to put a stop to this demoralizing and destructive traffic. In relation both to China and Japan some changes are desirable in our present system of consular jurisdiction. I hope at some future time to lay before you a scheme for its improvement in the entire East. The intimacy between our own country and Japan, the most advanced of the Eastern nations, continues to be cordial. I am advised that the Emperor contemplates the establishment of full constitutional government, and that he has already summoned a parliamentary congress for the purpose of effecting the change. Such a remarkable step toward complete assimilation with the Western system can not fail to bring Japan into closer and more beneficial relationship with ourselves as the chief Pacific power. A question has arisen in relation to the exercise in that country of the judicial functions conferred upon our ministers and consuls. The indictment, trial, and conviction in the consular court at Yokohama of John Ross, a merchant seaman on board an American vessel, have made it necessary for the Government to institute a careful examination into the nature and methods of this jurisdiction. It appeared that Ross was regularly shipped under the flag of the United States, but was by birth a British subject. My predecessor felt it his duty to maintain the position that during his service as a regularly shipped seaman on board an American merchant vessel Ross was subject to the laws of that service and to the jurisdiction of the United States consular authorities. I renew the recommendation which has been heretofore urged by the Executive upon the attention of Congress, that after the deduction of such amount as may be found due to American citizens the balance of the indemnity funds heretofore obtained from China and Japan, and which are now in the hands of the State Department, be returned to the Governments of those countries. The King of Hawaii, in the course of his homeward return after a journey around the world, has lately visited this country. While our relations with that Kingdom are friendly, this Government has viewed with concern the efforts to seek replenishment of the diminishing population of the islands from outward sources, to a degree which may impair the native sovereignty and independence, in which the United States was among the first to testify a lively interest. Relations of unimpaired amity have been maintained throughout the year with the respective Governments of Austria-Hungary, Belgium, Denmark, Hayti, Paraguay and Uruguay, Portugal, and Sweden and Norway. This may also be said of Greece and Ecuador, although our relations with those States have for some years been severed by the withdrawal of appropriations for diplomatic representatives at Athens and Quito. It seems expedient to restore those missions, even on a reduced scale, and I decidedly recommend such a course with respect to Ecuador, which is likely within the near future to play an important part among the nations of the Southern Pacific. At its last extra session the Senate called for the text of the Geneva convention for the relief of the wounded in war. I trust that this action foreshadows such interest in the subject as will result in the adhesion of the United States to that humane and commendable engagement. I invite your attention to the propriety of adopting the new code of international rules for the prevention of collisions on the high seas and of conforming the domestic legislation of the United States thereto, so that no confusion may arise from the application of conflicting rules in the case of vessels of different nationalities meeting in tidal waters. These international rules differ but slightly from our own. They have been adopted by the Navy Department for the governance of the war ships of the United States on the high seas and in foreign waters, and, through the action of the State Department in disseminating the rules and in acquainting shipmasters with the option of conforming to them without the jurisdictional waters of the United States, they are now very generally known and obeyed. The State Department still continues to publish to the country the trade and manufacturing reports received from its officers abroad. The success of this course warrants its continuance and such appropriation as may be required to meet the rapidly increasing demand for these publications. With special reference to the Atlanta Cotton Exposition, the October number of the reports was devoted to a valuable collection of papers on the cotton-goods trade of the world. The International Sanitary Conference for which, in 1879, Congress made provision assembled in this city early in January last, and its sessions were prolonged until March. Although it reached no specific conclusions affecting the future action of the participant powers, the interchange of views proved to be most valuable. The full protocols of the sessions have been already presented to the Senate. As pertinent to this general subject, I call your attention to the operations of the National Board of Health. Established by act of Congress approved March 3, 1879, its sphere of duty was enlarged by the act of June 2 in the same year. By the last-named act the board was required to institute such measures as might be deemed necessary for preventing the introduction of contagious or infectious diseases from foreign countries into the United States or from one State into another. The execution of the rules and regulations prepared by the board and approved by my predecessor has done much to arrest the progress of epidemic disease, and has thus rendered substantial service to the nation. The International Sanitary Conference, to which I have referred, adopted a form of a bill of health to be used by all vessels seeking to enter the ports of the countries whose representatives participated in its deliberations. This form has since been prescribed by the National Board of Health and incorporated with its rules and regulations, which have been approved by me in pursuance of law. The health of the people is of supreme importance. All measures looking to their protection against the spread of contagious diseases and to the increase of our sanitary knowledge for such purposes deserve attention of Congress. The report of the Secretary of the Treasury presents in detail a highly satisfactory exhibit of the state of the finances and the condition of the various branches of the public service administered by that Department. The ordinary revenues from all sources for the fiscal year ending June 30, 1881, were: 
 The ordinary expenditures for the same period were: 
 Leaving a surplus revenue of $100,069,404.98, which was applied as follows: 
 The requirements of the sinking fund for the year amounted to $90,786,064.02, which sum included a balance of $49,817,128.78, not provided for during the previous fiscal year. The sum of $74,480,20l.05 was applied to this fund, which left a deficit of $16,305,873.47. The increase of the revenues for 1881 over those of the previous year was $29,352,901.10. It is estimated that the receipts during the present fiscal year will reach $400,000,000 and the expenditures $270,000,000, leaving a surplus of $130,000,000 applicable to the sinking fund and the redemption of the public debt. I approve the recommendation of the Secretary of the Treasury that provision be made for the early retirement of silver certificates and that the act requiring their issue be repealed. They were issued in pursuance of the policy of the Government to maintain silver at or near the gold standard, and were accordingly made receivable for all customs, taxes, and public dues. About sixty-six millions of them are now outstanding. They form an unnecessary addition to the paper currency, a sufficient amount of which may be readily supplied by the national banks. In accordance with the act of February 28, 1878, the Treasury Department has monthly caused at least two millions in value of silver bullion to be coined into standard silver dollars. One hundred and two millions of these dollars have been already coined, while only about thirty-four millions are in circulation. For the reasons which he specifies, I concur in the Secretary's recommendation that the provision for coinage of a fixed amount each month be repealed, and that hereafter only so much be coined as shall be necessary to supply the demand. The Secretary advises that the issue of gold certificates should not for the present be resumed, and suggests that the national banks may properly be forbidden by law to retire their currency except upon reasonable notice of their intention so to do. Such legislation would seem to be justified by the recent action of certain banks on the occasion referred to in the Secretary's report. Of the fifteen millions of fractional currency still outstanding, only about eighty thousand has been redeemed the past year. The suggestion that this amount may properly be dropped from future statements of the public debt seems worthy of approval. So also does the suggestion of the Secretary as to the advisability of relieving the calendar of the United States courts in the southern district of New York by the transfer to another tribunal of the numerous suits there pending against collectors. The revenue from customs for the past fiscal year was $198,159,676.02, an increase of $11,637,611.42 over that of the year preceding. One hundred and thirty-eight million ninety-eight thousand five hundred and sixty-two dollars and thirty-nine cents of this amount was collected at the port of New York, leaving $50,251,113.63 as the amount collected at all the other ports of the country. Of this sum $47,977,137.63 was collected on sugar, melado, and molasses; $27,285,624.78 on wool and its manufactures; $21,462,534.34 on iron and steel and manufactures thereof; $19,038,665.81 on manufactures of silk; $10,825,115.21 on manufactures of cotton, and $6,469,643.04 on wines and spirits, making a total revenue from these sources of $133,058,720.81. The expenses of collection for the past year were $6,419,345.20, an increase over the preceding year of $387,410.04. Notwithstanding the increase in the revenue from customs over the preceding year, the gross value of the imports, including free goods, decreased over $25,000,000. The most marked decrease was in the value of unmanufactured wool, $14,023,682, and in that of scrap and pig iron, $12,810,671. The value of imported sugar, on the other hand, showed an increase of $7,457,474; of steel rails, $4,345,521; of barley, $2,154,204, and of steel in bars, ingots, etc., $1,620,046. Contrasted with the imports during the last fiscal year, the exports were as follows: 
 Compared with the previous year, there was an increase of $66,738,688 in the value of exports of merchandise and a decrease of $25,290,118 in the value of imports. The annual average of the excess of imports of merchandise over exports thereof for ten years previous to June 30, 1873, was $104,706,922, but for the last six years there has been an excess of exports over imports of merchandise amounting to $1,180,668,105, an annual average of $196,778,017. The specie value of the exports of domestic merchandise was $376,616,473 in 1870 and $883,925,947 in 1881, an increase of $507,309,474, or 135 per cent. The value of imports was $435,958,408 in 1870 and $642,664,628 in 1881, an increase of $206,706,220, or 47 per cent. During each year from 1862 to 1879, inclusive, the exports of specie exceeded the imports. The largest excess of such exports over imports was reached during the year 1864, when it amounted to $92,280,929. But during the year ended June 30, 1880, the imports of coin and bullion exceeded the exports by $75,891,391, and during the last fiscal year the excess of imports over exports was $91,168,650. In the last annual report of the Secretary of the Treasury the attention of Congress was called to the fact that $469,651,050 in 5 per cent bonds and $203,573,750 in 6 per cent bonds would become redeemable during the year, and Congress was asked to authorize the refunding of these bonds at a lower rate of interest. The bill for such refunding having failed to become a law, the Secretary of the Treasury in April last notified the holders of the $195,690,400 6 per cent bonds then outstanding that the bonds would be paid at par on the 1st day of July following, or that they might be "continued" at the pleasure of the Government, to bear interest at the rate of 3 1/2 per cent per annum. Under this notice $178,055,150 of the 6 per cent bonds were continued at the lower rate and $17,635,250 were redeemed. In the month of May a like notice was given respecting the redemption or continuance of the $439,841,350 of 5 per cent bonds then outstanding, and of these $401,504,900 were continued at 3 1/2 per cent per annum and $38,336,450 redeemed. The 6 per cent bonds of the loan of February 8, 1861, and of the Oregon war debt, amounting together to $14,125,800, having matured during the year, the Secretary of the Treasury gave notice of his intention to redeem the same, and such as have been presented have been paid from the surplus revenues. There have also been redeemed at par $16,179,100 of the 3 1/2 per cent "continued" bonds, making a total of bonds redeemed or which have ceased to bear interest during the year of $123,969,650. The reduction of the annual interest on the public debt through these transactions is as follows: 
 The 3 1/2 per cent bonds, being payable at the pleasure of the Government, are available for the investment of surplus revenues without the payment of premiums. Unless these bonds can be funded at a much lower rate of interest than they now bear, I agree with the Secretary of the Treasury that no legislation respecting them is desirable. It is a matter for congratulation that the business of the country has been so prosperous during the past year as to yield by taxation a large surplus of income to the Government. If the revenue laws remain unchanged, this surplus must year by year increase, on account of the reduction of the public debt and its burden of interest and because of the rapid increase of our population. In 1860, just prior to the institution of our internal-revenue system, our population but slightly exceeded 30,000,000; by the census of 1880 it is now found to exceed 50,000,000. It is estimated that even if the annual receipts and expenditures should continue as at present the entire debt could be paid in ten years. In view, however, of the heavy load of taxation which our people have already borne, we may well consider whether it is not the part of wisdom to reduce the revenues, even if we delay a little the payment of the debt. It seems to me that the time has arrived when the people may justly demand some relief from their present onerous burden, and that by due economy in the various branches of the public service this may readily be afforded. I therefore concur with the Secretary in recommending the abolition of all internal-revenue taxes except those upon tobacco in its various forms and upon distilled spirits and fermented liquors, and except also the special tax upon the manufacturers of and dealers in such articles. The retention of the latter tax is desirable as affording the officers of the Government a proper supervision of these articles for the prevention of fraud. I agree with the Secretary of the Treasury that the law imposing a stamp tax upon matches, proprietary articles, playing cards, cheeks, and drafts may with propriety be repealed, and the law also by which banks and bankers are assessed upon their capital and deposits. There seems to be a general sentiment in favor of this course. In the present condition of our revenues the tax upon deposits is especially unjust. It was never imposed in this country until it was demanded by the necessities of war, and was never exacted, I believe, in any other country even in its greatest exigencies. Banks are required to secure their circulation by pledging with the Treasurer of the United States bonds of the General Government. The interest upon these bonds, which at the time when the tax was imposed was 6 per cent, is now in most instances 3 1/2 per cent. Besides, the entire circulation was originally limited by law and no increase was allowable. When the existing banks had practically a monopoly of the business, there was force in the suggestion that for the franchise to the favored grantees the Government might very properly exact a tax on circulation; but for years the system has been free and the amount of circulation regulated by the public demand. The retention of this tax has been suggested as a means of reimbursing the Government for the expense of printing and furnishing the circulating notes. If the tax should be repealed, it would certainly seem proper to require the national banks to pay the amount of such expense to the Comptroller of the Currency. It is perhaps doubtful whether the immediate reduction of the rate of taxation upon liquors and tobacco is advisable, especially in view of the drain upon the Treasury which must attend the payment of arrears of pensions. A comparison, however, of the amount of taxes collected under the varying rates of taxation which have at different times prevailed suggests the intimation that some reduction may soon be made without material diminution of the revenue. The tariff laws also need revision; but, that a due regard may be paid to the conflicting interests of our citizens, important changes should be made with caution. If a careful revision can not be made at this session, a commission such as was lately approved by the Senate and is now recommended by the Secretary of the Treasury would doubtless lighten the labors of Congress whenever this subject shall be brought to its consideration. The accompanying report of the Secretary of War will make known to you the operations of that Department for the past year. He suggests measures for promoting the efficiency of the Army without adding to the number of its officers, and recommends the legislation necessary to increase the number of enlisted men to 30,000, the maximum allowed by law. This he deems necessary to maintain quietude on our ever-shifting frontier; to preserve peace and suppress disorder and marauding in new settlements; to protect settlers and their property against Indians, and Indians against the encroachments of intruders; and to enable peaceable immigrants to establish homes in the most remote parts of our country. The Army is now necessarily scattered over such a vast extent of territory that whenever an outbreak occurs reenforcements must be hurried from many quarters, over great distances, and always at heavy cost for transportation of men, horses, wagons, and supplies. I concur in the recommendations of the Secretary for increasing the Army to the strength of 30,000 enlisted men. It appears by the Secretary's report that in the absence of disturbances on the frontier the troops have been actively employed in collecting the Indians hitherto hostile and locating them on their proper reservations; that Sitting Bull and his adherents are now prisoners at Fort Randall; that the Utes have been moved to their new reservation in Utah; that during the recent outbreak of the Apaches it was necessary to reenforce the garrisons in Arizona by troops withdrawn from New Mexico; and that some of the Apaches are now held prisoners for trial, while some have escaped, and the majority of the tribe are now on their reservation. There is need of legislation to prevent intrusion upon the lands set apart for the Indians. A large military force, at great expense, is now required to patrol the boundary line between Kansas and the Indian Territory. The only punishment that can at present be inflicted is the forcible removal of the intruder and the imposition of a pecuniary fine, which in most cases it is impossible to collect. There should be a penalty by imprisonment in such cases. The separate organization of the Signal Service is urged by the Secretary of War, and a full statement of the advantages of such permanent organization is presented in the report of the Chief Signal Officer. A detailed account of the useful work performed by the Signal Corps and the Weather Bureau is also given in that report. I ask attention to the statements of the Secretary of War regarding the requisitions frequently made by the Indian Bureau upon the Subsistence Department of the Army for the casual support of bands and tribes of Indians whose appropriations are exhausted. The War Department should not be left, by reason of inadequate provision for the Indian Bureau, to contribute for the maintenance of Indians. The report of the Chief of Engineers furnishes a detailed account of the operations for the improvement of rivers and harbors. I commend to your attention the suggestions contained in this report in regard to the condition of our fortifications, especially our coast defenses, and recommend an increase of the strength of the Engineer Battalion, by which the efficiency of our torpedo system would be improved. I also call your attention to the remarks upon the improvement of the South Pass of the Mississippi River, the proposed free bridge over the Potomac River at Georgetown, the importance of completing at an early day the north wing of the War Department building, and other recommendations of the Secretary of War which appear in his report. The actual expenditures of that Department for the fiscal year ending June 30, 1881, were $42,122,201.39. The appropriations for the year 1882 were $44,889,725.42. The estimates for 1883 are $44,541,276.91. The report of the Secretary of the Navy exhibits the condition of that branch of the service and presents valuable suggestions for its improvement. I call your especial attention also to the appended report of the Advisory Board which he convened to devise suitable measures for increasing the efficiency of the Navy, and particularly to report as to the character and number of vessels necessary to place it upon a footing commensurate with the necessities of the Government. I can not too strongly urge upon you my conviction that every consideration of national safety, economy, and honor imperatively demands a thorough rehabilitation of our Navy. With a full appreciation of the fact that compliance with the suggestions of the head of that Department and of the Advisory Board must involve a large expenditure of the public moneys, I earnestly recommend such appropriations as will accomplish an end which seems to me so desirable. Nothing can be more inconsistent with true public economy than withholding the means necessary to accomplish the objects intrusted by the Constitution to the National Legislature. One of those objects, and one which is of paramount importance, is declared by our fundamental law to be the provision for the "common defense." Surely nothing is more essential to the defense of the United States and of all our people than the efficiency of our Navy. We have for many years maintained with foreign governments the relations of honorable peace, and that such relations may be permanent is desired by every patriotic citizen of the Republic. But if we heed the teachings of history we shall not forget that in the life of every nation emergencies may arise when a resort to arms can alone save it from dishonor. No danger from abroad now threatens this people, nor have we any cause to distrust the friendly professions of other governments. But for avoiding as well as for repelling dangers that may threaten us in the future we must be prepared to enforce any policy which we think wise to adopt. We must be ready to defend our harbors against aggression; to protect, by the distribution of our ships of war over the highways of commerce, the varied interests of our foreign trade and the persons and property of our citizens abroad; to maintain everywhere the honor of our flag and the distinguished position which we may rightfully claim among the nations of the world. The report of the Postmaster-General is a gratifying exhibit of the growth and efficiency of the postal service. The receipts from postage and other ordinary sources during the past fiscal year were $36,489,816.58. The receipts from the money-order business were $295,581.39, making a total of $36,785,397.97. The expenditure for the fiscal year was $39,251,736.46. The deficit supplied out of the general Treasury was $2,481,129.35, or 6.3 per cent of the amount expended. The receipts were $3,469,918.63 in excess of those of the previous year, and $4,575,397.97 in excess of the estimate made two years ago, before the present period of business prosperity had fairly begun. The whole number of letters mailed in this country in the last fiscal year exceeded 1,000,000,000. The registry system is reported to be in excellent condition, having been remodeled during the past four years with good results. The amount of registration fees collected during the last fiscal year was $712,882.20, an increase over the fiscal year ending June 30, 1877, of $345,443.40. The entire number of letters and packages registered during the year was 8,338,919, of which only 2,061 were lost or destroyed in transit. The operations of the money-order system are multiplying yearly under the impulse of immigration, of the rapid development of the newer States and Territories, and the consequent demand for additional means of intercommunication and exchange. During the past year 338 additional money-order offices have been established, making a total of 5,499 in operation at the date of this report. During the year the domestic money orders aggregated in value 105,075,769.35. A modification of the system is suggested, reducing the fees for money orders not exceeding $5 from 10 cents to 5 cents and making the maximum limit 100 in place of $50. Legislation for the disposition of unclaimed money orders in the possession of the Post-Office Department is recommended, in view of the fact that their total value now exceeds $1,000,000. The attention of Congress is again invited to the subject of establishing a system of savings depositories in connection with the Post-Office Department. The statistics of mail transportation show that during the past year railroad routes have been increased in length 6,249 miles and in cost $1,114,382, while steamboat routes have been decreased in length 2,182 miles and in cost $134,054. The so-called star routes have been decreased in length 3,949 miles and in cost $364,144. Nearly all of the more expensive routes have been superseded by railroad service. The cost of the star service must therefore rapidly decrease in the Western States and Territories. The Postmaster-General, however, calls attention to the constantly increasing cost of the railway mail service as a serious difficulty in the way of making the Department self-sustaining. Our postal intercourse with foreign countries has kept pace with the growth of the domestic service. Within the past year several countries and colonies have declared their adhesion to the Postal Union. It now includes all those which have an organized postal service except Bolivia, Costa Rica, New Zealand, and the British colonies in Australia. As has been already stated, great reductions have recently been made in the expense of the star-route service. The investigations of the Department of Justice and the Post-Office Department have resulted in the presentation of indictments against persons formerly connected with that service, accusing them of offenses against the United States. I have enjoined upon the officials who are charged with the conduct of the cases on the part of the Government, and upon the eminent counsel who before my accession to the Presidency were called to their assistance, the duty of prosecuting with the utmost vigor of the law all persons who may be found chargeable with frauds upon the postal service. The Acting Attorney-General calls attention to the necessity of modifying the present system of the courts of the United States--a necessity due to the large increase of business, especially in the Supreme Court. Litigation in our Federal tribunals became greatly expanded after the close of the late war. So long as that expansion might be attributable to the abnormal condition in which the community found itself immediately after the return of peace, prudence required that no change be made in the constitution of our judicial tribunals. But it has now become apparent that an immense increase of litigation has directly resulted from the wonderful growth and development of the country. There is no ground for belief that the business of the United States courts will ever be less in volume than at present. Indeed, that it is likely to be much greater is generally recognized by the bench and bar. In view of the fact that Congress has already given much consideration to this subject, I make no suggestion as to detail, but express the hope that your deliberations may result in such legislation as will give early relief to our overburdened courts. The Acting Attorney-General also calls attention to the disturbance of the public tranquillity during the past year in the Territory of Arizona. A band of armed desperadoes known as "Cowboys," probably numbering from fifty to one hundred men, have been engaged for months in committing acts of lawlessness and brutality which the local authorities have been unable to repress. The depredations of these "Cowboys" have also extended into Mexico, which the marauders reach from the Arizona frontier. With every disposition to meet the exigencies of the case, I am embarrassed by lack of authority to deal with them effectually. The punishment of crimes committed within Arizona should ordinarily, of course, be left to the Territorial authorities; but it is worthy consideration whether acts which necessarily tend to embroil the United States with neighboring governments should not be declared crimes against the United States. Some of the incursions alluded to may perhaps be within the scope of the law (U. S. Revised Statutes, sec. 5286) forbidding "military expeditions or enterprises" against friendly states; but in view of the speedy assembling of your body I have preferred to await such legislation as in your wisdom the occasion may seem to demand. It may perhaps be thought proper to provide that the setting on foot within our own territory of brigandage and armed marauding expeditions against friendly nations and their citizens shall be punishable as an offense against the United States. I will add that in the event of a request from the Territorial government for protection by the United States against "domestic violence" this Government would be powerless to render assistance. The act of 1795, chapter 36, passed at a time when Territorial governments received little attention from Congress, enforced this duty of the United States only as to the State governments. But the act of 1807, chapter 39, applied also to Territories. This law seems to have remained in force until the revision of the statutes, when the provision for the Territories was dropped. I am not advised whether this alteration was intentional or accidental; but as it seems to me that the Territories should be offered the protection which is accorded to the Staten by the Constitution, I suggest legislation to that end. It seems to me, too, that whatever views may prevail as to the policy of recent legislation by which the Army has ceased to be a part of the posse comitatus, an exception might well be made for permitting the military to assist the civil Territorial authorities in enforcing the laws of the United States. This use of the Army would not seem to be within the alleged evil against which that legislation was aimed. From sparseness of population and other circumstances it is often quite impracticable to summon a civil posse in places where officers of justice require assistance and where a military force is within easy reach. The report of the Secretary of the Interior, with accompanying documents, presents an elaborate account of the business of that Department. A summary of it would be too extended for this place. I ask your careful attention to the report itself. Prominent among the matters which challenge the attention of Congress at its present session is the management of our Indian affairs. While this question has been a cause of trouble and embarrassment from the infancy of the Government, it is but recently that any effort has been made for its solution at once serious, determined, consistent, and promising success. It has been easier to resort to convenient makeshifts for tiding over temporary difficulties than to grapple with the great permanent problem, and accordingly the easier course has almost invariably been pursued. It was natural, at a time when the national territory seemed almost illimitable and contained many millions of acres far outside the bounds of civilized settlements, that a policy should have been initiated which more than aught else has been the fruitful source of our Indian complications. I refer, of course, to the policy of dealing with the various Indian tribes as separate nationalities, of relegating them by treaty stipulations to the occupancy of immense reservations in the West, and of encouraging them to live a savage life, undisturbed by any earnest and well-directed efforts to bring them under the influences of civilization. The unsatisfactory results which have sprung from this policy are becoming apparent to all. As the white settlements have crowded the borders of the reservations, the Indians, sometimes contentedly and sometimes against their will, have been transferred to other hunting grounds, from which they have again been dislodged whenever their new-found homes have been desired by the adventurous settlers. These removals and the frontier collisions by which they have often been preceded have led to frequent and disastrous conflicts between the races. It is profitless to discuss here which of them has been chiefly responsible for the disturbances whose recital occupies so large a space upon the pages of our history. We have to deal with the appalling fact that though thousands of lives have been sacrificed and hundreds of millions of dollars expended in the attempt to solve the Indian problem, it has until within the past few years seemed scarcely nearer a solution than it was half a century ago. But the Government has of late been cautiously but steadily feeling its way to the adoption of a policy which has already produced gratifying results, and which, in my judgment, is likely, if Congress and the Executive accord in its support, to relieve us ere long from the difficulties which have hitherto beset us. For the success of the efforts now making to introduce among the Indians the customs and pursuits of civilized life and gradually to absorb them into the mass of our citizens, sharing their rights and holden to their responsibilities, there is imperative need for legislative action. My suggestions in that regard will be chiefly such as have been already called to the attention of Congress and have received to some extent its consideration. First. I recommend the passage of an act making the laws of the various States and Territories applicable to the Indian reservations within their borders and extending the laws of the State of Arkansas to the portion of the Indian Territory not occupied by the Five Civilized Tribes. The Indian should receive the protection of the law. He should be allowed to maintain in court his rights of person and property. He has repeatedly begged for this privilege. Its exercise would be very valuable to him in his progress toward civilization. Second. Of even greater importance is a measure which has been frequently recommended by my predecessors in office, and in furtherance of which several bills have been from time to time introduced in both Houses of Congress. The enactment of a general law permitting the allotment in severalty, to such Indians, at least, as desire it, of a reasonable quantity of land secured to them by patent, and for their own protection made inalienable for twenty or twenty-five years, is demanded for their present welfare and their permanent advancement. In return for such considerate action on the part of the Government, there is reason to believe that the Indians in large numbers would be persuaded to sever their tribal relations and to engage at once in agricultural pursuits. Many of them realize the fact that their hunting days are over and that it is now for their best interests to conform their manner of life to the new order of things. By no greater inducement than the assurance of permanent title to the soil can they be led to engage in the occupation of tilling it. The well-attested reports of their increasing interest in husbandry justify the hope and belief that the enactment of such a statute as I recommend would be at once attended with gratifying results. A resort to the allotment system would have a direct and powerful influence in dissolving the tribal bond, which is so prominent a feature of savage life, and which tends so strongly to perpetuate it. Third. I advise a liberal appropriation for the support of Indian schools, because of my confident belief that such a course is consistent with the wisest economy. Even among the most uncultivated Indian tribes there is reported to be a general and urgent desire on the part of the chiefs and older members for the education of their children. It is unfortunate, in view of this fact, that during the past year the means which have been at the command of the Interior Department for the purpose of Indian instruction have proved to be utterly inadequate. The success of the schools which are in operation at Hampton, Carlisle, and Forest Grove should not only encourage a more generous provision for the support of those institutions, but should prompt the establishment of others of a similar character. They are doubtless much more potent for good than the day schools upon the reservation, as the pupils are altogether separated from the surroundings of savage life and brought into constant contact with civilization. There are many other phases of this subject which are of great interest, but which can not be included within the becoming limits of this communication. They are discussed ably in the reports of the Secretary of the Interior and the Commissioner of Indian Affairs. For many years the Executive, in his annual message to Congress; has urged the necessity of stringent legislation for the suppression of polygamy in the Territories, and especially in the Territory of Utah. The existing statute for the punishment of this odious crime, so revolting to the moral and religious sense of Christendom, has been persistently and contemptuously violated ever since its enactment. Indeed, in spite of commendable efforts on the part of the authorities who represent the United States in that Territory, the law has in very rare instances been enforced, and, for a cause to which reference will presently be made, is practically a dead letter. The fact that adherents of the Mormon Church, which rests upon polygamy as its corner stone, have recently been peopling in large numbers Idaho, Arizona, and other of our Western Territories is well calculated to excite the liveliest interest and apprehension. It imposes upon Congress and the Executive the duty of arraying against this barbarous system all the power which under the Constitution and the law they can wield for its destruction. Reference has been already made to the obstacles which the United States officers have encountered in their efforts to punish violations of law. Prominent among these obstacles is the difficulty of procuring legal evidence sufficient to warrant a conviction even in the case of the most notorious offenders. Your attention is called to a recent opinion of the Supreme Court of the United States, explaining its judgment of reversal in the case of Miles, who had been convicted of bigamy in Utah. The court refers to the fact that the secrecy attending the celebration of marriages in that Territory makes the proof of polygamy very difficult, and the propriety is suggested of modifying the law of evidence which now makes a wife incompetent to testify against her husband. This suggestion is approved. I recommend also the passage of an act providing that in the Territories of the United States the fact that a woman has been married to a person charged with bigamy shall not disqualify her as a witness upon his trial for that offense. I further recommend legislation by which any person solemnizing a marriage in any of the Territories shall be required, under stringent penalties for neglect or refusal, to file a certificate of such marriage in the supreme court of the Territory. Doubtless Congress may devise other practicable measures for obviating the difficulties which have hitherto attended the efforts to suppress this iniquity. I assure you of my determined purpose to cooperate with you in any lawful and discreet measures which may be proposed to that end. Although our system of government does not contemplate that the nation should provide or support a system for the education of our people, no measures calculated to promote that general intelligence and virtue upon which the perpetuity of our institutions so greatly depends have ever been regarded with indifference by Congress or the Executive. A large portion of the public domain has been from time to time devoted to the promotion of education. There is now a special reason why, by setting apart the proceeds of its sales of public lands or by some other course, the Government should aid the work of education. Many who now exercise the right of suffrage are unable to read the ballot which they cast. Upon many who had just emerged from a condition of slavery were suddenly devolved the responsibilities of citizenship in that portion of the country most impoverished by war. I have been pleased to learn from the report of the Commissioner of Education that there has lately been a commendable increase of interest and effort for their instruction; but all that can be done by local legislation and private generosity should be supplemented by such aid as can be constitutionally afforded by the National Government. I would suggest that if any fund be dedicated to this purpose it may be wisely distributed in the different States according to the ratio of illiteracy, as by this means those localities which are most in need of such assistance will reap its special benefits. The report of the Commissioner of Agriculture exhibits the results of the experiments in which that Department has been engaged during the past year and makes important suggestions in reference to the agricultural development of the country. The steady increase of our population and the consequent addition to the number of those engaging in the pursuit of husbandry are giving to this Department a growing dignity and importance. The Commissioner's suggestions touching its capacity for greater usefulness deserve attention, as it more and more commends itself to the interests which it was created to promote. It appears from the report of the Commissioner of Pensions that since 1860 789,063 original pension claims have been filed; 450,949 of these have been allowed and inscribed on the pension roll; 72,539 have been rejected and abandoned, being 13+ per cent of the whole number of claims settled. There are now pending for settlement 265,575 original pension claims, 227,040 of which were filed prior to July 1, 1880. These, when allowed, will involve the payment of arrears from the date of discharge in case of an invalid and from date of death or termination of a prior right in all other cases. From all the data obtainable it is estimated that 15 per cent of the number of claims now pending will be rejected or abandoned. This would show the probable rejection of 34,040 cases and the probable admission of about 193,000 claims, all of which involve the payment of arrears of pension. With the present force employed, the number of adjudications remaining the same and no new business intervening, this number of claims (193,000) could be acted upon in a period of six years; and taking January 1, 1884, as a near period from which to estimate in each case an average amount of arrears, it is found that every case allowed would require for the first payment upon it the sum of $1,350. Multiplying this amount by the whole number of probable admissions gives $250,000,000 as the sum required for first payment. This represents the sum which must be paid upon claims which were filed before July 1, 1880, and are now pending and entitled to the benefits of the arrears act. From this amount ($250,000,000) may be deducted from ten to fifteen millions for cases where, the claimant dying, there is no person who under the law would be entitled to succeed to the pension, leaving $235,000,000 as the probable amount to be paid. In these estimates no account has been taken of the 38,500 cases filed since June 30, 1880, and now pending, which must receive attention as current business, but which do not involve the payment of any arrears beyond the date of filing the claim. Of this number it is estimated that 86 per cent will be allowed. As has been stated, with the present force of the Pension Bureau (675 clerks) it is estimated that it will take six years to dispose of the claims now pending. It is stated by the Commissioner of Pensions that by an addition of 250 clerks (increasing the adjudicating force rather than the mechanical) double the amount of work could be accomplished, so that these cases could be acted upon within three years. Aside from the considerations of justice which may be urged for a speedy settlement of the claims now on the files of the Pension Office, it is no less important on the score of economy, inasmuch as fully one-third of the clerical force of the office is now wholly occupied in giving attention to correspondence with the thousands of claimants whose cases have been on the files for the past eighteen years. The fact that a sum so enormous must be expended by the Government to meet demands for arrears of pensions is an admonition to Congress and the Executive to give cautious consideration to any similar project in the future. The great temptation to the presentation of fictitious claims afforded by the fact that the average sum obtained upon each application is $1,300 leads me to suggest the propriety of making some special appropriation for the prevention of fraud. I advise appropriations for such internal improvements as the wisdom of Congress may deem to be of public importance. The necessity of improving the navigation of the Mississippi River justifies a special allusion to that subject. I suggest the adoption of some measure for the removal of obstructions which now impede the navigation of that great channel of commerce. In my letter accepting the nomination for the Vice-Presidency I stated that in my judgment-- 
  No man should be the incumbent of an office the duties of which he is for any cause unfit to perform; who is lacking in the ability, fidelity, or integrity which a proper administration of such office demands. This sentiment would doubtless meet with general acquiescence, but opinion has been widely divided upon the wisdom and practicability of the various reformatory schemes which have been suggested and of certain proposed regulations governing appointments to public office. 
  The efficiency of such regulations has been distrusted mainly because they have seemed to exalt mere educational and abstract tests above general business capacity and even special fitness for the particular work in hand. It seems to me that the rules which should be applied to the management of the public service may properly conform in the main to such as regulate the conduct of successful private business: 
  Original appointments should be based upon ascertained fitness. 
  The tenure of office should be stable. 
  Positions of responsibility should, so far as practicable, be filled by the promotion of worthy and efficient officers. 
  The investigation of all complaints and the punishment of all official misconduct should be prompt and thorough.
 The views expressed in the foregoing letter are those which will govern my administration of the executive office. They are doubtless shared by all intelligent and patriotic citizens, however divergent in their opinions as to the best methods of putting them into practical operation. For example, the assertion that "original appointments should be based upon ascertained fitness" is not open to dispute. But the question how in practice such fitness can be most effectually ascertained is one which has for years excited interest and discussion. The measure which, with slight variations in its details, has lately been urged upon the attention of Congress and the Executive has as its principal feature the scheme of competitive examination. Save for certain exceptions, which need not here be specified, this plan would allow admission to the service only in its lowest grade, and would accordingly demand that all vacancies in higher positions should be filled by promotion alone. In these particulars it is in conformity with the existing civil-service system of Great Britain; and indeed the success which has attended that system in the country of its birth is the strongest argument which has been urged for its adoption here. The fact should not, however, be overlooked that there are certain features of the English system which have not generally been received with favor in this country, even among the foremost advocates of civil-service reform. Among them are: 
1. A tenure of office winch is substantially a life tenure. 
2. A limitation of the maximum age at which an applicant can enter the service, whereby all men in middle life or older are, with some exceptions, rigidly excluded. 
3. A retiring allowance upon going out of office. These three elements are as important factors of the problem as any of the others. To eliminate them from the English system would effect a most radical change in its theory and practice. The avowed purpose of that system is to induce the educated young men of the country to devote their lives to public employment by an assurance that having once entered upon it they need never leave it, and that after voluntary retirement they shall be the recipients of an annual pension. That this system as an entirety has proved very successful in Great Britain seems to be generally conceded even by those who once opposed its adoption. To a statute which should incorporate all its essential features I should feel bound to give my approval; but whether it would be for the best interests of the public to fix upon an expedient for immediate and extensive application which embraces certain features of the English system, but excludes or ignores others of equal importance, may be seriously doubted, even by those who are impressed, as I am myself, with the grave importance of correcting the evils which inhere in the present methods of appointment. If, for example, the English rule which shuts out persons above the age of 25 years from a large number of public employments is not to be made an essential part of our own system, it is questionable whether the attainment of the highest number of marks at a competitive examination should be the criterion by which all applications for appointment should be put to test. And under similar conditions it may also be questioned whether admission to the service should be strictly limited to its lowest ranks. There are very many characteristics which go to make a model civil servant. Prominent among them are probity, industry, good sense, good habits, good temper, patience, order, courtesy, tact, self-reliance, manly deference to superior officers, and manly consideration for inferiors. The absence of these traits is not supplied by wide knowledge of books, or by promptitude in answering questions, or by any other quality likely to be brought to light by competitive examination. To make success in such a contest, therefore, an indispensable condition of public employment would very likely result in the practical exclusion of the older applicants, even though they might possess qualifications far superior to their younger and more brilliant competitors. These suggestions must not be regarded as evincing any spirit of opposition to the competitive plan, which has been to some extent successfully employed already, and which may hereafter vindicate the claim of its most earnest supporters; but it ought to be seriously considered whether the application of the same educational standard to persons of mature years and to young men fresh from school and college would not be likely to exalt mere intellectual proficiency above other qualities of equal or greater importance. Another feature of the proposed system is the selection by promotion of all officers of the Government above the lowest grade, except such as would fairly be regarded as exponents of the policy of the Executive and the principles of the dominant party. To afford encouragement to faithful public servants by exciting in their minds the hope of promotion if they are found to merit it is much to be desired. But would it be wise to adopt a rule so rigid as to permit no other mode of supplying the intermediate walks of the service? There are many persons who fill subordinate positions with great credit, but lack those qualities which are requisite for higher posts of duty; and, besides, the modes of thought and action of one whose service in a governmental bureau has been long continued are often so cramped by routine procedure as almost to disqualify him from instituting changes required by the public interests. An infusion of new blood from time to time into the middle ranks of the service might be very beneficial in its results. The subject under discussion is one of grave importance. The evils which are complained of can not be eradicated at once; the work must be gradual. The present English system is a growth of years, and was not created by a single stroke of executive or legislative action. Its beginnings are found in an order in council promulgated in 1855, and it was after patient and cautious scrutiny of its workings that fifteen years later it took its present shape. Five years after the issuance of the order in council, and at a time when resort had been had to competitive examinations as an experiment much more extensively than has yet been the case in this country, a select committee of the House of Commons made a report to that House which, declaring its approval of the competitive plan, deprecated, nevertheless, any precipitancy in its general adoption as likely to endanger its ultimate success. During this tentative period the results of the two methods of pass examination and competitive examination were closely watched and compared. It may be that before we confine ourselves upon this important question within the stringent bounds of statutory enactment we may profitably await the result of further inquiry and experiment. The submission of a portion of the nominations to a central board of examiners selected solely for testing the qualifications of applicants may perhaps, without resort to the competitive test, put an end to the mischiefs which attend the present system of appointment, and it may be feasible to vest in such a board a wide discretion to ascertain the characteristics and attainments of candidates in those particulars which I have already referred to as being no less important than mere intellectual attainment. If Congress should deem it advisable at the present session to establish competitive tests for admission to the service, no doubts such as have been suggested shall deter me from giving the measure my earnest support. And I urgently recommend, should there be a failure to pass any other act upon this subject, that an appropriation of $25,000 per year may be made for the enforcement of section 1753 of the Revised Statutes. With the aid thus afforded me I shall strive to execute the provisions of that law according to its letter and spirit. I am unwilling, in justice to the present civil servants of the Government, to dismiss this subject without declaring my dissent from the severe and almost indiscriminate censure with which they have been recently assailed. That they are as a class indolent, inefficient, and corrupt is a statement which has been often made and widely credited; but when the extent, variety, delicacy, and importance of their duties are considered the great majority of the employees of the Government are, in my judgment, deserving of high commendation. The continuing decline of the merchant marine of the United States is greatly to be deplored. In view of the fact that we furnish so large a proportion of the freights of the commercial world and that our shipments are steadily and rapidly increasing, it is cause of surprise that not only is our navigation interest diminishing, but it is less than when our exports and imports were not half so large as now, either in bulk or value. There must be some peculiar hindrance to the development of this interest, or the enterprise and energy of American mechanics and capitalists would have kept this country at least abreast of our rivals in the friendly contest for ocean supremacy. The substitution of iron for wood and of steam for sail have wrought great revolutions in the carrying trade of the world; but these changes could not have been adverse to America if we had given to our navigation interests a portion of the aid and protection which have been so wisely bestowed upon our manufactures. I commend the whole subject to the wisdom of Congress, with the suggestion that no question of greater magnitude or farther reaching importance can engage their attention. In 1875 the Supreme Court of the United States declared unconstitutional the statutes of certain States which imposed upon shipowners or consignees a tax of $1.50 for each passenger arriving from a foreign country, or in lieu thereof required a bond to indemnify the State and local authorities against expense for the future relief or support of such passenger. Since this decision the expense attending the care and supervision of immigrants has fallen on the States at whose ports they have landed. As a large majority of such immigrants, immediately upon their arrival, proceed to the inland States and the Territories to seek permanent homes, it is manifestly unjust to impose upon the State whose shores they first reach the burden which it now bears. For this reason, and because of the national importance of the subject, I recommend legislation regarding the supervision and transitory care of immigrants at the ports of debarkation. I regret to state that the people of Alaska have reason to complain that they are as yet unprovided with any form of government by which life or property can be protected. While the extent of its population does not justify the application of the costly machinery of Territorial administration, there is immediate necessity for constituting such a form of government as will promote the education of the people and secure the administration of justice. The Senate at its last session passed a bill providing for the construction of a building for the Library of Congress, but it failed to become a law. The provision of suitable protection for this great collection of books and for the copyright department connected with it has become a subject of national importance and should receive prompt attention. The report of the Commissioners of the District of Columbia herewith transmitted will inform you fully of the condition of the affairs of the District. They urge the vital importance of legislation for the reclamation and improvement of the marshes and for the establishment of the harbor lines along the Potomac River front. It is represented that in their present condition these marshes seriously affect the health of the residents of the adjacent parts of the city, and that they greatly mar the general aspect of the park in which stands the Washington Monument. This improvement would add to that park and to the park south of the Executive Mansion a large area of valuable land, and would transform what is now believed to be a dangerous nuisance into an attractive landscape extending to the river front. They recommend the removal of the steam railway lines from the surface of the streets of the city and the location of the necessary depots in such places as may be convenient for the public accommodation, and they call attention to the deficiency of the water supply, which seriously affects the material prosperity of the city and the health and comfort of its inhabitants. I commend these subjects to your favorable consideration. 
The importance of timely legislation with respect to the ascertainment and declaration of the vote for Presidential electors was sharply called to the attention of the people more than four years ago. It is to be hoped that some well-defined measure may be devised before another national election which will render unnecessary a resort to any expedient of a temporary character for the determination of questions upon contested returns. Questions which concern the very existence of the Government and the liberties of the people were suggested by the prolonged illness of the late President and his consequent incapacity to perform the functions of his office. It is provided by the second article of the Constitution, in the fifth clause of its first section, that "in case of the removal of the President from office, or of his death, resignation, or inability to discharge the powers and duties of the said office, the same shall devolve on the Vice-President." What is the intendment of the Constitution in its specification of "inability to discharge the powers and duties of the said office" as one of the contingencies which calls the Vice-President to the exercise of Presidential functions? Is the inability limited in its nature to long-continued intellectual incapacity, or has it a broader import? What must be its extent and duration? How must its existence be established? Has the President whose inability is the subject of inquiry any voice in determining whether or not it exists, or is the decision of that momentous and delicate question confided to the Vice-President, or is it contemplated by the Constitution that Congress should provide by law precisely what should constitute inability and how and by what tribunal or authority it should be ascertained? If the inability proves to be temporary in its nature, and during its continuance the Vice-President lawfully exercises the functions of the Executive, by what tenure does he hold his office? Does he continue as President for the remainder of the four years' term? Or would the elected President, if his inability should cease in the interval, be empowered to resume his office? And if, having such lawful authority, he should exercise it, would the Vice-President be thereupon empowered to resume his powers and duties as such? I can not doubt that these important questions will receive your early and thoughtful consideration. Deeply impressed with the gravity of the responsibilities which have so unexpectedly devolved upon me, it will be my constant purpose to cooperate with you in such measures as will promote the glory of the country and the prosperity of its people.
An appalling calamity has befallen the American people since their chosen representatives last met in the halls where you are now assembled. We might else recall with unalloyed content the rare prosperity with which throughout the year the nation has been blessed. Its harvests have been plenteous; its varied industries have thriven; the health of its people has been preserved; it has maintained with foreign governments the undisturbed relations of amity and peace. For these manifestations of His favor we owe to Him who holds our destiny in His hands the tribute of our grateful devotion. To that mysterious exercise of His will which has taken from us the loved and illustrious citizen who was but lately the head of the nation we bow in sorrow and submission. The memory of his exalted character, of his noble achievements, and of his patriotic life will be treasured forever as a sacred possession of the whole people. The announcement of his death drew from foreign governments and peoples tributes of sympathy and sorrow which history will record as signal tokens of the kinship of nations and the federation of mankind. The feeling of good will between our own Government and that of Great Britain was never more marked than at present. In recognition of this pleasing fact I directed, on the occasion of the late centennial celebration at Yorktown, that a salute be given to the British flag. Save for the correspondence to which I shall refer hereafter in relation to the proposed canal across the Isthmus of Panama, little has occurred worthy of mention in the diplomatic relations of the two countries. Early in the year the Fortune Bay claims were satisfactorily settled by the British Government paying in full the sum of 15,000 pounds, most of which has been already distributed. As the terms of the settlement included compensation for injuries suffered by our fishermen at Aspee Bay, there has been retained from the gross award a sum which is deemed adequate for those claims. The participation of Americans in the exhibitions at Melbourne and Sydney will be approvingly mentioned in the reports of the two exhibitions, soon to be presented to Congress. They will disclose the readiness of our countrymen to make successful competition in distant fields of enterprise. Negotiations for an international copyright convention are in hopeful progress. The surrender of Sitting Bull and his forces upon the Canadian frontier has allayed apprehension, although bodies of British Indians still cross the border in quest of sustenance. Upon this subject a correspondence has been opened which promises an adequate understanding. Our troops have orders to avoid meanwhile all collisions with alien Indians. The presence at the Yorktown celebration of representatives of the French Republic and descendants of Lafayette and of his gallant compatriots who were our allies in the Revolution has served to strengthen the spirit of good will which has always existed between the two nations. You will be furnished with the proceedings of the Bimetallic Conference held during the summer at the city of Paris. No accord was reached, but a valuable interchange of views was had, and the conference will next year be renewed. At the Electrical Exhibition and Congress, also held at Paris, this country was creditably represented by eminent specialists, who, in the absence of an appropriation, generously lent their efficient aid at the instance of the State Department. While our exhibitors in this almost distinctively American field of achievement have won several valuable awards, I recommend that Congress provide for the repayment of the personal expenses incurred in the public interest by the honorary commissioners and delegates. No new questions respecting the status of our naturalized citizens in Germany have arisen during the year, and the causes of complaint, especially in Alsace and Lorraine, have practically ceased through the liberal action of the Imperial Government in accepting our often-expressed views on the subject. The application of the treaty of 1868 to the lately acquired Rhenish provinces has received very earnest attention, and a definite and lasting agreement on this point is confidently expected. The participation of the descendants of Baron von Steuben in the Yorktown festivities, and their subsequent reception by their American kinsmen, strikingly evinced the ties of good will which unite the German people and our own. Our intercourse with Spain has been friendly. An agreement concluded in February last fixes a term for the labors of the Spanish and American Claims Commission. The Spanish Government has been requested to pay the late awards of that Commission, and will, it is believed, accede to the request as promptly and courteously as on former occasions. By recent legislation onerous fines have been imposed upon American shipping in Spanish and colonial ports for slight irregularities in manifests. One ease of hardship is specially worthy of attention. The bark Masonic, bound for Japan, entered Manila in distress, and is there sought to be confiscated under Spanish revenue laws for an alleged shortage in her transshipped cargo. Though efforts for her relief have thus far proved unavailing, it is expected that the whole matter will be adjusted in a friendly spirit. The Senate resolutions of condolence on the assassination of the Czar Alexander II were appropriately communicated to the Russian Government, which in turn has expressed its sympathy in our late national bereavement. It is desirable that our cordial relations with Russia should be strengthened by proper engagements assuring to peaceable Americans who visit the Empire the consideration which is due to them as citizens of a friendly state. This is especially needful with respect to American Israelites, whose classification with the native Hebrews has evoked energetic remonstrances from this Government. A supplementary consular agreement with Italy has been sanctioned and proclaimed, which puts at rest conflicts of jurisdiction in the case of crimes on shipboard. Several important international conferences have been held in Italy during the year. At the Geographical Congress of Venice, the Beneficence Congress of Milan, and the Hygienic Congress of Turin this country was represented by delegates from branches of the public service or by private citizens duly accredited in an honorary capacity. It is hoped that Congress will give such prominence to the results of their participation as they may seem to deserve. The abolition of all discriminating duties against such colonial productions of the Dutch East Indies as are imported hither from Holland has been already considered by Congress. I trust that at the present session the matter may be favorably concluded. The insecurity of life and property in many parts of Turkey has given rise to correspondence with the Porte looking particularly to the better protection of American missionaries in the Empire. The condemned murderer of the eminent missionary Dr. Justin W. Parsons has not yet been executed, although this Government has repeatedly demanded that exemplary justice be done. The Swiss Government has again solicited the good offices of our diplomatic and consular agents for the protection of its citizens in countries where it is not itself represented. This request has, within proper limits, been granted. Our agents in Switzerland have been instructed to protest against the conduct of the authorities of certain communes in permitting the emigration to this country of criminals and other objectionable persons. Several such persons, through the cooperation of the commissioners of emigration at New York, have been sent back by the steamers which brought them. A continuance of this course may prove a more effectual remedy than diplomatic remonstrance. Treaties of commerce and navigation and for the regulation of consular privileges have been concluded with Roumania and Servia since their admission into the family of European States. As is natural with contiguous states having like institutions and like aims of advancement and development, the friendship of the United States and Mexico has been constantly maintained. This Government has lost no occasion of encouraging the Mexican Government to a beneficial realization of the mutual advantages which will result from more intimate commercial intercourse and from the opening of the rich interior of Mexico to railway enterprise. I deem it important that means be provided to restrain the lawlessness unfortunately so common on the frontier and to suppress the forays of the reservation Indians on either side of the Rio Grande. The neighboring States of Central America have preserved internal peace, and their outward relations toward us have been those of intimate friendship. There are encouraging signs of their growing disposition to subordinate their local interests to those which are common to them by reason of their geographical relations. The boundary dispute between Guatemala and Mexico has afforded this Government an opportunity to exercise its good offices for preventing a rupture between those States and for procuring a peaceable solution of the question. I cherish strong hope that in view of our relations of amity with both countries our friendly counsels may prevail. A special envoy of Guatemala has brought to me the condolences of his Government and people on the death of President Garfield. The Costa Rican Government lately framed an engagement with Colombia for settling by arbitration the boundary question between those countries, providing that the post of arbitrator should be offered successively to the King of the Belgians, the King of Spain, and the President of the Argentine Confederation. The King of the Belgians has declined to act, but I am not as yet advised of the action of the King of Spain. As we have certain interests in the disputed territory which are protected by our treaty engagements with one of the parties, it is important that the arbitration should not without our consent affect our rights, and this Government has accordingly thought proper to make its views known to the parties to the agreement, as well as to intimate them to the Belgian and Spanish Governments. The questions growing out of the proposed interoceanic waterway across the Isthmus of Panama are of grave national importance. This Government has not been unmindful of the solemn obligations imposed upon it by its compact of 1846 with Colombia, as the independent and sovereign mistress of the territory crossed by the canal, and has sought to render them effective by fresh engagements with the Colombian Republic looking to their practical execution. The negotiations to this end, after they had reached what appeared to be a mutually satisfactory solution here, were met in Colombia by a disavowal of the powers which its envoy had assumed and by a proposal for renewed negotiation on a modified basis. Meanwhile this Government learned that Colombia had proposed to the European powers to join in a guaranty of the neutrality of the proposed Panama canal--a guaranty which would be in direct contravention of our obligation as the sole guarantor of the integrity of Colombian territory and of the neutrality of the canal itself. My lamented predecessor felt it his duty to place before the European powers the reasons which make the prior guaranty of the United States indispensable, and for which the interjection of any foreign guaranty might be regarded as a superfluous and unfriendly act. Foreseeing the probable reliance of the British Government on the provisions of the Clayton-Bulwer treaty of 1850 as affording room for a share in the guaranties which the United States covenanted with Colombia four years before, I have not hesitated to supplement the action of my predecessor by proposing to Her Majesty's Government the modification of that instrument and the abrogation of such clauses thereof as do not comport with the obligations of the United States toward Colombia or with the vital needs of the two friendly parties to the compact. This Government sees with great concern the continuance of the hostile relations between Chile, Bolivia, and Peru. An early peace between these Republics is much to be desired, not only that they may themselves be spared further misery and bloodshed, but because their continued antagonism threatens consequences which are, in my judgment, dangerous to the interests of republican government on this continent and calculated to destroy the best elements of our free and peaceful civilization. As in the present excited condition of popular feeling in these countries there has been serious misapprehension of the position of the United States, and as separate diplomatic intercourse with each through independent ministers is sometimes subject, owing to the want of prompt reciprocal communication, to temporary misunderstanding, I have deemed it judicious at the present time to send a special envoy accredited to all and each of them, and furnished with general instructions which will, I trust, enable him to bring these powers into friendly relations. The Government of Venezuela maintains its attitude of warm friendship and continues with great regularity its payment of the monthly quota of the diplomatic debt. Without suggesting the direction in which Congress should act, I ask its attention to the pending questions affecting the distribution of the sums thus far received. The relations between Venezuela and France growing out of the same debt have been for some time past in an unsatisfactory state, and this Government, as the neighbor and one of the largest creditors of Venezuela, has interposed its influence with the French Government with the view of producing a friendly and honorable adjustment. I regret that the commercial interests between the United States and Brazil, from which great advantages were hoped a year ago, have suffered from the withdrawal of the American lines of communication between the Brazilian ports and our own. Through the efforts of our minister resident at Buenos Ayres and the United States minister at Santiago, a treaty has been concluded between the Argentine Republic and Chile, disposing of the long-pending Patagonian boundary question. It is a matter of congratulation that our Government has been afforded the opportunity of successfully exerting its good influence for the prevention of disagreements between these Republics of the American continent. I am glad to inform you that the treaties lately negotiated with China have been duly ratified on both sides and the exchange made at Peking. Legislation is necessary to carry their provisions into effect. The prompt and friendly spirit with which the Chinese Government, at the request of the United States, conceded the modification of existing treaties should secure careful regard for the interests and susceptibilities of that Government in the enactment of any laws relating to Chinese immigration. Those clauses of the treaties which forbid the participation of citizens or vessels of the United States in the opium trade will doubtless receive your approval. They will attest the sincere interest which our people and Government feel in the commendable efforts of the Chinese Government to put a stop to this demoralizing and destructive traffic. In relation both to China and Japan some changes are desirable in our present system of consular jurisdiction. I hope at some future time to lay before you a scheme for its improvement in the entire East. The intimacy between our own country and Japan, the most advanced of the Eastern nations, continues to be cordial. I am advised that the Emperor contemplates the establishment of full constitutional government, and that he has already summoned a parliamentary congress for the purpose of effecting the change. Such a remarkable step toward complete assimilation with the Western system can not fail to bring Japan into closer and more beneficial relationship with ourselves as the chief Pacific power. A question has arisen in relation to the exercise in that country of the judicial functions conferred upon our ministers and consuls. The indictment, trial, and conviction in the consular court at Yokohama of John Ross, a merchant seaman on board an American vessel, have made it necessary for the Government to institute a careful examination into the nature and methods of this jurisdiction. It appeared that Ross was regularly shipped under the flag of the United States, but was by birth a British subject. My predecessor felt it his duty to maintain the position that during his service as a regularly shipped seaman on board an American merchant vessel Ross was subject to the laws of that service and to the jurisdiction of the United States consular authorities. I renew the recommendation which has been heretofore urged by the Executive upon the attention of Congress, that after the deduction of such amount as may be found due to American citizens the balance of the indemnity funds heretofore obtained from China and Japan, and which are now in the hands of the State Department, be returned to the Governments of those countries. The King of Hawaii, in the course of his homeward return after a journey around the world, has lately visited this country. While our relations with that Kingdom are friendly, this Government has viewed with concern the efforts to seek replenishment of the diminishing population of the islands from outward sources, to a degree which may impair the native sovereignty and independence, in which the United States was among the first to testify a lively interest. Relations of unimpaired amity have been maintained throughout the year with the respective Governments of Austria-Hungary, Belgium, Denmark, Hayti, Paraguay and Uruguay, Portugal, and Sweden and Norway. This may also be said of Greece and Ecuador, although our relations with those States have for some years been severed by the withdrawal of appropriations for diplomatic representatives at Athens and Quito. It seems expedient to restore those missions, even on a reduced scale, and I decidedly recommend such a course with respect to Ecuador, which is likely within the near future to play an important part among the nations of the Southern Pacific. At its last extra session the Senate called for the text of the Geneva convention for the relief of the wounded in war. I trust that this action foreshadows such interest in the subject as will result in the adhesion of the United States to that humane and commendable engagement. I invite your attention to the propriety of adopting the new code of international rules for the prevention of collisions on the high seas and of conforming the domestic legislation of the United States thereto, so that no confusion may arise from the application of conflicting rules in the case of vessels of different nationalities meeting in tidal waters. These international rules differ but slightly from our own. They have been adopted by the Navy Department for the governance of the war ships of the United States on the high seas and in foreign waters, and, through the action of the State Department in disseminating the rules and in acquainting shipmasters with the option of conforming to them without the jurisdictional waters of the United States, they are now very generally known and obeyed. The State Department still continues to publish to the country the trade and manufacturing reports received from its officers abroad. The success of this course warrants its continuance and such appropriation as may be required to meet the rapidly increasing demand for these publications. With special reference to the Atlanta Cotton Exposition, the October number of the reports was devoted to a valuable collection of papers on the cotton-goods trade of the world. The International Sanitary Conference for which, in 1879, Congress made provision assembled in this city early in January last, and its sessions were prolonged until March. Although it reached no specific conclusions affecting the future action of the participant powers, the interchange of views proved to be most valuable. The full protocols of the sessions have been already presented to the Senate. As pertinent to this general subject, I call your attention to the operations of the National Board of Health. Established by act of Congress approved March 3, 1879, its sphere of duty was enlarged by the act of June 2 in the same year. By the last-named act the board was required to institute such measures as might be deemed necessary for preventing the introduction of contagious or infectious diseases from foreign countries into the United States or from one State into another. The execution of the rules and regulations prepared by the board and approved by my predecessor has done much to arrest the progress of epidemic disease, and has thus rendered substantial service to the nation. The International Sanitary Conference, to which I have referred, adopted a form of a bill of health to be used by all vessels seeking to enter the ports of the countries whose representatives participated in its deliberations. This form has since been prescribed by the National Board of Health and incorporated with its rules and regulations, which have been approved by me in pursuance of law. The health of the people is of supreme importance. All measures looking to their protection against the spread of contagious diseases and to the increase of our sanitary knowledge for such purposes deserve attention of Congress. The report of the Secretary of the Treasury presents in detail a highly satisfactory exhibit of the state of the finances and the condition of the various branches of the public service administered by that Department. The ordinary revenues from all sources for the fiscal year ending June 30, 1881, were: The ordinary expenditures for the same period were: Leaving a surplus revenue of $100,069,404.98, which was applied as follows: The requirements of the sinking fund for the year amounted to $90,786,064.02, which sum included a balance of $49,817,128.78, not provided for during the previous fiscal year. The sum of $74,480,20l.05 was applied to this fund, which left a deficit of $16,305,873.47. The increase of the revenues for 1881 over those of the previous year was $29,352,901.10. It is estimated that the receipts during the present fiscal year will reach $400,000,000 and the expenditures $270,000,000, leaving a surplus of $130,000,000 applicable to the sinking fund and the redemption of the public debt. I approve the recommendation of the Secretary of the Treasury that provision be made for the early retirement of silver certificates and that the act requiring their issue be repealed. They were issued in pursuance of the policy of the Government to maintain silver at or near the gold standard, and were accordingly made receivable for all customs, taxes, and public dues. About sixty-six millions of them are now outstanding. They form an unnecessary addition to the paper currency, a sufficient amount of which may be readily supplied by the national banks. In accordance with the act of February 28, 1878, the Treasury Department has monthly caused at least two millions in value of silver bullion to be coined into standard silver dollars. One hundred and two millions of these dollars have been already coined, while only about thirty-four millions are in circulation. For the reasons which he specifies, I concur in the Secretary's recommendation that the provision for coinage of a fixed amount each month be repealed, and that hereafter only so much be coined as shall be necessary to supply the demand. The Secretary advises that the issue of gold certificates should not for the present be resumed, and suggests that the national banks may properly be forbidden by law to retire their currency except upon reasonable notice of their intention so to do. Such legislation would seem to be justified by the recent action of certain banks on the occasion referred to in the Secretary's report. Of the fifteen millions of fractional currency still outstanding, only about eighty thousand has been redeemed the past year. The suggestion that this amount may properly be dropped from future statements of the public debt seems worthy of approval. So also does the suggestion of the Secretary as to the advisability of relieving the calendar of the United States courts in the southern district of New York by the transfer to another tribunal of the numerous suits there pending against collectors. The revenue from customs for the past fiscal year was $198,159,676.02, an increase of $11,637,611.42 over that of the year preceding. One hundred and thirty-eight million ninety-eight thousand five hundred and sixty-two dollars and thirty-nine cents of this amount was collected at the port of New York, leaving $50,251,113.63 as the amount collected at all the other ports of the country. Of this sum $47,977,137.63 was collected on sugar, melado, and molasses; $27,285,624.78 on wool and its manufactures; $21,462,534.34 on iron and steel and manufactures thereof; $19,038,665.81 on manufactures of silk; $10,825,115.21 on manufactures of cotton, and $6,469,643.04 on wines and spirits, making a total revenue from these sources of $133,058,720.81. The expenses of collection for the past year were $6,419,345.20, an increase over the preceding year of $387,410.04. Notwithstanding the increase in the revenue from customs over the preceding year, the gross value of the imports, including free goods, decreased over $25,000,000. The most marked decrease was in the value of unmanufactured wool, $14,023,682, and in that of scrap and pig iron, $12,810,671. The value of imported sugar, on the other hand, showed an increase of $7,457,474; of steel rails, $4,345,521; of barley, $2,154,204, and of steel in bars, ingots, etc., $1,620,046. Contrasted with the imports during the last fiscal year, the exports were as follows: Compared with the previous year, there was an increase of $66,738,688 in the value of exports of merchandise and a decrease of $25,290,118 in the value of imports. The annual average of the excess of imports of merchandise over exports thereof for ten years previous to June 30, 1873, was $104,706,922, but for the last six years there has been an excess of exports over imports of merchandise amounting to $1,180,668,105, an annual average of $196,778,017. The specie value of the exports of domestic merchandise was $376,616,473 in 1870 and $883,925,947 in 1881, an increase of $507,309,474, or 135 per cent. The value of imports was $435,958,408 in 1870 and $642,664,628 in 1881, an increase of $206,706,220, or 47 per cent. During each year from 1862 to 1879, inclusive, the exports of specie exceeded the imports. The largest excess of such exports over imports was reached during the year 1864, when it amounted to $92,280,929. But during the year ended June 30, 1880, the imports of coin and bullion exceeded the exports by $75,891,391, and during the last fiscal year the excess of imports over exports was $91,168,650. In the last annual report of the Secretary of the Treasury the attention of Congress was called to the fact that $469,651,050 in 5 per cent bonds and $203,573,750 in 6 per cent bonds would become redeemable during the year, and Congress was asked to authorize the refunding of these bonds at a lower rate of interest. The bill for such refunding having failed to become a law, the Secretary of the Treasury in April last notified the holders of the $195,690,400 6 per cent bonds then outstanding that the bonds would be paid at par on the 1st day of July following, or that they might be "continued" at the pleasure of the Government, to bear interest at the rate of 3 1/2 per cent per annum. Under this notice $178,055,150 of the 6 per cent bonds were continued at the lower rate and $17,635,250 were redeemed. In the month of May a like notice was given respecting the redemption or continuance of the $439,841,350 of 5 per cent bonds then outstanding, and of these $401,504,900 were continued at 3 1/2 per cent per annum and $38,336,450 redeemed. The 6 per cent bonds of the loan of February 8, 1861, and of the Oregon war debt, amounting together to $14,125,800, having matured during the year, the Secretary of the Treasury gave notice of his intention to redeem the same, and such as have been presented have been paid from the surplus revenues. There have also been redeemed at par $16,179,100 of the 3 1/2 per cent "continued" bonds, making a total of bonds redeemed or which have ceased to bear interest during the year of $123,969,650. The reduction of the annual interest on the public debt through these transactions is as follows: The 3 1/2 per cent bonds, being payable at the pleasure of the Government, are available for the investment of surplus revenues without the payment of premiums. Unless these bonds can be funded at a much lower rate of interest than they now bear, I agree with the Secretary of the Treasury that no legislation respecting them is desirable. It is a matter for congratulation that the business of the country has been so prosperous during the past year as to yield by taxation a large surplus of income to the Government. If the revenue laws remain unchanged, this surplus must year by year increase, on account of the reduction of the public debt and its burden of interest and because of the rapid increase of our population. In 1860, just prior to the institution of our internal-revenue system, our population but slightly exceeded 30,000,000; by the census of 1880 it is now found to exceed 50,000,000. It is estimated that even if the annual receipts and expenditures should continue as at present the entire debt could be paid in ten years. In view, however, of the heavy load of taxation which our people have already borne, we may well consider whether it is not the part of wisdom to reduce the revenues, even if we delay a little the payment of the debt. It seems to me that the time has arrived when the people may justly demand some relief from their present onerous burden, and that by due economy in the various branches of the public service this may readily be afforded. I therefore concur with the Secretary in recommending the abolition of all internal-revenue taxes except those upon tobacco in its various forms and upon distilled spirits and fermented liquors, and except also the special tax upon the manufacturers of and dealers in such articles. The retention of the latter tax is desirable as affording the officers of the Government a proper supervision of these articles for the prevention of fraud. I agree with the Secretary of the Treasury that the law imposing a stamp tax upon matches, proprietary articles, playing cards, cheeks, and drafts may with propriety be repealed, and the law also by which banks and bankers are assessed upon their capital and deposits. There seems to be a general sentiment in favor of this course. In the present condition of our revenues the tax upon deposits is especially unjust. It was never imposed in this country until it was demanded by the necessities of war, and was never exacted, I believe, in any other country even in its greatest exigencies. Banks are required to secure their circulation by pledging with the Treasurer of the United States bonds of the General Government. The interest upon these bonds, which at the time when the tax was imposed was 6 per cent, is now in most instances 3 1/2 per cent. Besides, the entire circulation was originally limited by law and no increase was allowable. When the existing banks had practically a monopoly of the business, there was force in the suggestion that for the franchise to the favored grantees the Government might very properly exact a tax on circulation; but for years the system has been free and the amount of circulation regulated by the public demand. The retention of this tax has been suggested as a means of reimbursing the Government for the expense of printing and furnishing the circulating notes. If the tax should be repealed, it would certainly seem proper to require the national banks to pay the amount of such expense to the Comptroller of the Currency. It is perhaps doubtful whether the immediate reduction of the rate of taxation upon liquors and tobacco is advisable, especially in view of the drain upon the Treasury which must attend the payment of arrears of pensions. A comparison, however, of the amount of taxes collected under the varying rates of taxation which have at different times prevailed suggests the intimation that some reduction may soon be made without material diminution of the revenue. The tariff laws also need revision; but, that a due regard may be paid to the conflicting interests of our citizens, important changes should be made with caution. If a careful revision can not be made at this session, a commission such as was lately approved by the Senate and is now recommended by the Secretary of the Treasury would doubtless lighten the labors of Congress whenever this subject shall be brought to its consideration. The accompanying report of the Secretary of War will make known to you the operations of that Department for the past year. He suggests measures for promoting the efficiency of the Army without adding to the number of its officers, and recommends the legislation necessary to increase the number of enlisted men to 30,000, the maximum allowed by law. This he deems necessary to maintain quietude on our ever-shifting frontier; to preserve peace and suppress disorder and marauding in new settlements; to protect settlers and their property against Indians, and Indians against the encroachments of intruders; and to enable peaceable immigrants to establish homes in the most remote parts of our country. The Army is now necessarily scattered over such a vast extent of territory that whenever an outbreak occurs reenforcements must be hurried from many quarters, over great distances, and always at heavy cost for transportation of men, horses, wagons, and supplies. I concur in the recommendations of the Secretary for increasing the Army to the strength of 30,000 enlisted men. It appears by the Secretary's report that in the absence of disturbances on the frontier the troops have been actively employed in collecting the Indians hitherto hostile and locating them on their proper reservations; that Sitting Bull and his adherents are now prisoners at Fort Randall; that the Utes have been moved to their new reservation in Utah; that during the recent outbreak of the Apaches it was necessary to reenforce the garrisons in Arizona by troops withdrawn from New Mexico; and that some of the Apaches are now held prisoners for trial, while some have escaped, and the majority of the tribe are now on their reservation. There is need of legislation to prevent intrusion upon the lands set apart for the Indians. A large military force, at great expense, is now required to patrol the boundary line between Kansas and the Indian Territory. The only punishment that can at present be inflicted is the forcible removal of the intruder and the imposition of a pecuniary fine, which in most cases it is impossible to collect. There should be a penalty by imprisonment in such cases. The separate organization of the Signal Service is urged by the Secretary of War, and a full statement of the advantages of such permanent organization is presented in the report of the Chief Signal Officer. A detailed account of the useful work performed by the Signal Corps and the Weather Bureau is also given in that report. I ask attention to the statements of the Secretary of War regarding the requisitions frequently made by the Indian Bureau upon the Subsistence Department of the Army for the casual support of bands and tribes of Indians whose appropriations are exhausted. The War Department should not be left, by reason of inadequate provision for the Indian Bureau, to contribute for the maintenance of Indians. The report of the Chief of Engineers furnishes a detailed account of the operations for the improvement of rivers and harbors. I commend to your attention the suggestions contained in this report in regard to the condition of our fortifications, especially our coast defenses, and recommend an increase of the strength of the Engineer Battalion, by which the efficiency of our torpedo system would be improved. I also call your attention to the remarks upon the improvement of the South Pass of the Mississippi River, the proposed free bridge over the Potomac River at Georgetown, the importance of completing at an early day the north wing of the War Department building, and other recommendations of the Secretary of War which appear in his report. The actual expenditures of that Department for the fiscal year ending June 30, 1881, were $42,122,201.39. The appropriations for the year 1882 were $44,889,725.42. The estimates for 1883 are $44,541,276.91. The report of the Secretary of the Navy exhibits the condition of that branch of the service and presents valuable suggestions for its improvement. I call your especial attention also to the appended report of the Advisory Board which he convened to devise suitable measures for increasing the efficiency of the Navy, and particularly to report as to the character and number of vessels necessary to place it upon a footing commensurate with the necessities of the Government. I can not too strongly urge upon you my conviction that every consideration of national safety, economy, and honor imperatively demands a thorough rehabilitation of our Navy. With a full appreciation of the fact that compliance with the suggestions of the head of that Department and of the Advisory Board must involve a large expenditure of the public moneys, I earnestly recommend such appropriations as will accomplish an end which seems to me so desirable. Nothing can be more inconsistent with true public economy than withholding the means necessary to accomplish the objects intrusted by the Constitution to the National Legislature. One of those objects, and one which is of paramount importance, is declared by our fundamental law to be the provision for the "common defense." Surely nothing is more essential to the defense of the United States and of all our people than the efficiency of our Navy. We have for many years maintained with foreign governments the relations of honorable peace, and that such relations may be permanent is desired by every patriotic citizen of the Republic. But if we heed the teachings of history we shall not forget that in the life of every nation emergencies may arise when a resort to arms can alone save it from dishonor. No danger from abroad now threatens this people, nor have we any because to distrust the friendly professions of other governments. But for avoiding as well as for repelling dangers that may threaten us in the future we must be prepared to enforce any policy which we think wise to adopt. We must be ready to defend our harbors against aggression; to protect, by the distribution of our ships of war over the highways of commerce, the varied interests of our foreign trade and the persons and property of our citizens abroad; to maintain everywhere the honor of our flag and the distinguished position which we may rightfully claim among the nations of the world. The report of the Postmaster-General is a gratifying exhibit of the growth and efficiency of the postal service. The receipts from postage and other ordinary sources during the past fiscal year were $36,489,816.58. The receipts from the money-order business were $295,581.39, making a total of $36,785,397.97. The expenditure for the fiscal year was $39,251,736.46. The deficit supplied out of the general Treasury was $2,481,129.35, or 6.3 per cent of the amount expended. The receipts were $3,469,918.63 in excess of those of the previous year, and $4,575,397.97 in excess of the estimate made two years ago, before the present period of business prosperity had fairly begun. The whole number of letters mailed in this country in the last fiscal year exceeded 1,000,000,000. The registry system is reported to be in excellent condition, having been remodeled during the past four years with good results. The amount of registration fees collected during the last fiscal year was $712,882.20, an increase over the fiscal year ending June 30, 1877, of $345,443.40. The entire number of letters and packages registered during the year was 8,338,919, of which only 2,061 were lost or destroyed in transit. The operations of the money-order system are multiplying yearly under the impulse of immigration, of the rapid development of the newer States and Territories, and the consequent demand for additional means of intercommunication and exchange. During the past year 338 additional money-order offices have been established, making a total of 5,499 in operation at the date of this report. During the year the domestic money orders aggregated in value 105,075,769.35. A modification of the system is suggested, reducing the fees for money orders not exceeding $5 from 10 cents to 5 cents and making the maximum limit 100 in place of $50. Legislation for the disposition of unclaimed money orders in the possession of the Post-Office Department is recommended, in view of the fact that their total value now exceeds $1,000,000. The attention of Congress is again invited to the subject of establishing a system of savings depositories in connection with the Post-Office Department. The statistics of mail transportation show that during the past year railroad routes have been increased in length 6,249 miles and in cost $1,114,382, while steamboat routes have been decreased in length 2,182 miles and in cost $134,054. The so-called star routes have been decreased in length 3,949 miles and in cost $364,144. Nearly all of the more expensive routes have been superseded by railroad service. The cost of the star service must therefore rapidly decrease in the Western States and Territories. The Postmaster-General, however, calls attention to the constantly increasing cost of the railway mail service as a serious difficulty in the way of making the Department self-sustaining. Our postal intercourse with foreign countries has kept pace with the growth of the domestic service. Within the past year several countries and colonies have declared their adhesion to the Postal Union. It now includes all those which have an organized postal service except Bolivia, Costa Rica, New Zealand, and the British colonies in Australia. As has been already stated, great reductions have recently been made in the expense of the star-route service. The investigations of the Department of Justice and the Post-Office Department have resulted in the presentation of indictments against persons formerly connected with that service, accusing them of offenses against the United States. I have enjoined upon the officials who are charged with the conduct of the cases on the part of the Government, and upon the eminent counsel who before my accession to the Presidency were called to their assistance, the duty of prosecuting with the utmost vigor of the law all persons who may be found chargeable with frauds upon the postal service. The Acting Attorney-General calls attention to the necessity of modifying the present system of the courts of the United States--a necessity due to the large increase of business, especially in the Supreme Court. Litigation in our Federal tribunals became greatly expanded after the close of the late war. So long as that expansion might be attributable to the abnormal condition in which the community found itself immediately after the return of peace, prudence required that no change be made in the constitution of our judicial tribunals. But it has now become apparent that an immense increase of litigation has directly resulted from the wonderful growth and development of the country. There is no ground for belief that the business of the United States courts will ever be less in volume than at present. Indeed, that it is likely to be much greater is generally recognized by the bench and bar. In view of the fact that Congress has already given much consideration to this subject, I make no suggestion as to detail, but express the hope that your deliberations may result in such legislation as will give early relief to our overburdened courts. The Acting Attorney-General also calls attention to the disturbance of the public tranquillity during the past year in the Territory of Arizona. A band of armed desperadoes known as "Cowboys," probably numbering from fifty to one hundred men, have been engaged for months in committing acts of lawlessness and brutality which the local authorities have been unable to repress. The depredations of these "Cowboys" have also extended into Mexico, which the marauders reach from the Arizona frontier. With every disposition to meet the exigencies of the case, I am embarrassed by lack of authority to deal with them effectually. The punishment of crimes committed within Arizona should ordinarily, of course, be left to the Territorial authorities; but it is worthy consideration whether acts which necessarily tend to embroil the United States with neighboring governments should not be declared crimes against the United States. Some of the incursions alluded to may perhaps be within the scope of the law (YOU. S. Revised Statutes, sec. 5286) forbidding "military expeditions or enterprises" against friendly states; but in view of the speedy assembling of your body I have preferred to await such legislation as in your wisdom the occasion may seem to demand. It may perhaps be thought proper to provide that the setting on foot within our own territory of brigandage and armed marauding expeditions against friendly nations and their citizens shall be punishable as an offense against the United States. I will add that in the event of a request from the Territorial government for protection by the United States against "domestic violence" this Government would be powerless to render assistance. The act of 1795, chapter 36, passed at a time when Territorial governments received little attention from Congress, enforced this duty of the United States only as to the State governments. But the act of 1807, chapter 39, applied also to Territories. This law seems to have remained in force until the revision of the statutes, when the provision for the Territories was dropped. I am not advised whether this alteration was intentional or accidental; but as it seems to me that the Territories should be offered the protection which is accorded to the Staten by the Constitution, I suggest legislation to that end. It seems to me, too, that whatever views may prevail as to the policy of recent legislation by which the Army has ceased to be a part of the posse comitatus, an exception might well be made for permitting the military to assist the civil Territorial authorities in enforcing the laws of the United States. This use of the Army would not seem to be within the alleged evil against which that legislation was aimed. From sparseness of population and other circumstances it is often quite impracticable to summon a civil posse in places where officers of justice require assistance and where a military force is within easy reach. The report of the Secretary of the Interior, with accompanying documents, presents an elaborate account of the business of that Department. A summary of it would be too extended for this place. I ask your careful attention to the report itself. Prominent among the matters which challenge the attention of Congress at its present session is the management of our Indian affairs. While this question has been a because of trouble and embarrassment from the infancy of the Government, it is but recently that any effort has been made for its solution at once serious, determined, consistent, and promising success. It has been easier to resort to convenient makeshifts for tiding over temporary difficulties than to grapple with the great permanent problem, and accordingly the easier course has almost invariably been pursued. It was natural, at a time when the national territory seemed almost illimitable and contained many millions of acres far outside the bounds of civilized settlements, that a policy should have been initiated which more than aught else has been the fruitful source of our Indian complications. I refer, of course, to the policy of dealing with the various Indian tribes as separate nationalities, of relegating them by treaty stipulations to the occupancy of immense reservations in the West, and of encouraging them to live a savage life, undisturbed by any earnest and well-directed efforts to bring them under the influences of civilization. The unsatisfactory results which have sprung from this policy are becoming apparent to all. As the white settlements have crowded the borders of the reservations, the Indians, sometimes contentedly and sometimes against their will, have been transferred to other hunting grounds, from which they have again been dislodged whenever their new-found homes have been desired by the adventurous settlers. These removals and the frontier collisions by which they have often been preceded have led to frequent and disastrous conflicts between the races. It is profitless to discuss here which of them has been chiefly responsible for the disturbances whose recital occupies so large a space upon the pages of our history. We have to deal with the appalling fact that though thousands of lives have been sacrificed and hundreds of millions of dollars expended in the attempt to solve the Indian problem, it has until within the past few years seemed scarcely nearer a solution than it was half a century ago. But the Government has of late been cautiously but steadily feeling its way to the adoption of a policy which has already produced gratifying results, and which, in my judgment, is likely, if Congress and the Executive accord in its support, to relieve us ere long from the difficulties which have hitherto beset us. For the success of the efforts now making to introduce among the Indians the customs and pursuits of civilized life and gradually to absorb them into the mass of our citizens, sharing their rights and holden to their responsibilities, there is imperative need for legislative action. My suggestions in that regard will be chiefly such as have been already called to the attention of Congress and have received to some extent its consideration. First. I recommend the passage of an act making the laws of the various States and Territories applicable to the Indian reservations within their borders and extending the laws of the State of Arkansas to the portion of the Indian Territory not occupied by the Five Civilized Tribes. The Indian should receive the protection of the law. He should be allowed to maintain in court his rights of person and property. He has repeatedly begged for this privilege. Its exercise would be very valuable to him in his progress toward civilization. Second. Of even greater importance is a measure which has been frequently recommended by my predecessors in office, and in furtherance of which several bills have been from time to time introduced in both Houses of Congress. The enactment of a general law permitting the allotment in severalty, to such Indians, at least, as desire it, of a reasonable quantity of land secured to them by patent, and for their own protection made inalienable for twenty or twenty-five years, is demanded for their present welfare and their permanent advancement. In return for such considerate action on the part of the Government, there is reason to believe that the Indians in large numbers would be persuaded to sever their tribal relations and to engage at once in agricultural pursuits. Many of them realize the fact that their hunting days are over and that it is now for their best interests to conform their manner of life to the new order of things. By no greater inducement than the assurance of permanent title to the soil can they be led to engage in the occupation of tilling it. The well-attested reports of their increasing interest in husbandry justify the hope and belief that the enactment of such a statute as I recommend would be at once attended with gratifying results. A resort to the allotment system would have a direct and powerful influence in dissolving the tribal bond, which is so prominent a feature of savage life, and which tends so strongly to perpetuate it. Third. I advise a liberal appropriation for the support of Indian schools, because of my confident belief that such a course is consistent with the wisest economy. Even among the most uncultivated Indian tribes there is reported to be a general and urgent desire on the part of the chiefs and older members for the education of their children. It is unfortunate, in view of this fact, that during the past year the means which have been at the command of the Interior Department for the purpose of Indian instruction have proved to be utterly inadequate. The success of the schools which are in operation at Hampton, Carlisle, and Forest Grove should not only encourage a more generous provision for the support of those institutions, but should prompt the establishment of others of a similar character. They are doubtless much more potent for good than the day schools upon the reservation, as the pupils are altogether separated from the surroundings of savage life and brought into constant contact with civilization. There are many other phases of this subject which are of great interest, but which can not be included within the becoming limits of this communication. They are discussed ably in the reports of the Secretary of the Interior and the Commissioner of Indian Affairs. For many years the Executive, in his annual message to Congress; has urged the necessity of stringent legislation for the suppression of polygamy in the Territories, and especially in the Territory of Utah. The existing statute for the punishment of this odious crime, so revolting to the moral and religious sense of Christendom, has been persistently and contemptuously violated ever since its enactment. Indeed, in spite of commendable efforts on the part of the authorities who represent the United States in that Territory, the law has in very rare instances been enforced, and, for a because to which reference will presently be made, is practically a dead letter. The fact that adherents of the Mormon Church, which rests upon polygamy as its corner stone, have recently been peopling in large numbers Idaho, Arizona, and other of our Western Territories is well calculated to excite the liveliest interest and apprehension. It imposes upon Congress and the Executive the duty of arraying against this barbarous system all the power which under the Constitution and the law they can wield for its destruction. Reference has been already made to the obstacles which the United States officers have encountered in their efforts to punish violations of law. Prominent among these obstacles is the difficulty of procuring legal evidence sufficient to warrant a conviction even in the case of the most notorious offenders. Your attention is called to a recent opinion of the Supreme Court of the United States, explaining its judgment of reversal in the case of Miles, who had been convicted of bigamy in Utah. The court refers to the fact that the secrecy attending the celebration of marriages in that Territory makes the proof of polygamy very difficult, and the propriety is suggested of modifying the law of evidence which now makes a wife incompetent to testify against her husband. This suggestion is approved. I recommend also the passage of an act providing that in the Territories of the United States the fact that a woman has been married to a person charged with bigamy shall not disqualify her as a witness upon his trial for that offense. I further recommend legislation by which any person solemnizing a marriage in any of the Territories shall be required, under stringent penalties for neglect or refusal, to file a certificate of such marriage in the supreme court of the Territory. Doubtless Congress may devise other practicable measures for obviating the difficulties which have hitherto attended the efforts to suppress this iniquity. I assure you of my determined purpose to cooperate with you in any lawful and discreet measures which may be proposed to that end. Although our system of government does not contemplate that the nation should provide or support a system for the education of our people, no measures calculated to promote that general intelligence and virtue upon which the perpetuity of our institutions so greatly depends have ever been regarded with indifference by Congress or the Executive. A large portion of the public domain has been from time to time devoted to the promotion of education. There is now a special reason why, by setting apart the proceeds of its sales of public lands or by some other course, the Government should aid the work of education. Many who now exercise the right of suffrage are unable to read the ballot which they cast. Upon many who had just emerged from a condition of slavery were suddenly devolved the responsibilities of citizenship in that portion of the country most impoverished by war. I have been pleased to learn from the report of the Commissioner of Education that there has lately been a commendable increase of interest and effort for their instruction; but all that can be done by local legislation and private generosity should be supplemented by such aid as can be constitutionally afforded by the National Government. I would suggest that if any fund be dedicated to this purpose it may be wisely distributed in the different States according to the ratio of illiteracy, as by this means those localities which are most in need of such assistance will reap its special benefits. The report of the Commissioner of Agriculture exhibits the results of the experiments in which that Department has been engaged during the past year and makes important suggestions in reference to the agricultural development of the country. The steady increase of our population and the consequent addition to the number of those engaging in the pursuit of husbandry are giving to this Department a growing dignity and importance. The Commissioner's suggestions touching its capacity for greater usefulness deserve attention, as it more and more commends itself to the interests which it was created to promote. It appears from the report of the Commissioner of Pensions that since 1860 789,063 original pension claims have been filed; 450,949 of these have been allowed and inscribed on the pension roll; 72,539 have been rejected and abandoned, being 13+ per cent of the whole number of claims settled. There are now pending for settlement 265,575 original pension claims, 227,040 of which were filed prior to July 1, 1880. These, when allowed, will involve the payment of arrears from the date of discharge in case of an invalid and from date of death or termination of a prior right in all other cases. From all the data obtainable it is estimated that 15 per cent of the number of claims now pending will be rejected or abandoned. This would show the probable rejection of 34,040 cases and the probable admission of about 193,000 claims, all of which involve the payment of arrears of pension. With the present force employed, the number of adjudications remaining the same and no new business intervening, this number of claims (193,000) could be acted upon in a period of six years; and taking January 1, 1884, as a near period from which to estimate in each case an average amount of arrears, it is found that every case allowed would require for the first payment upon it the sum of $1,350. Multiplying this amount by the whole number of probable admissions gives $250,000,000 as the sum required for first payment. This represents the sum which must be paid upon claims which were filed before July 1, 1880, and are now pending and entitled to the benefits of the arrears act. From this amount ($250,000,000) may be deducted from ten to fifteen millions for cases where, the claimant dying, there is no person who under the law would be entitled to succeed to the pension, leaving $235,000,000 as the probable amount to be paid. In these estimates no account has been taken of the 38,500 cases filed since June 30, 1880, and now pending, which must receive attention as current business, but which do not involve the payment of any arrears beyond the date of filing the claim. Of this number it is estimated that 86 per cent will be allowed. As has been stated, with the present force of the Pension Bureau (675 clerks) it is estimated that it will take six years to dispose of the claims now pending. It is stated by the Commissioner of Pensions that by an addition of 250 clerks (increasing the adjudicating force rather than the mechanical) double the amount of work could be accomplished, so that these cases could be acted upon within three years. Aside from the considerations of justice which may be urged for a speedy settlement of the claims now on the files of the Pension Office, it is no less important on the score of economy, inasmuch as fully one-third of the clerical force of the office is now wholly occupied in giving attention to correspondence with the thousands of claimants whose cases have been on the files for the past eighteen years. The fact that a sum so enormous must be expended by the Government to meet demands for arrears of pensions is an admonition to Congress and the Executive to give cautious consideration to any similar project in the future. The great temptation to the presentation of fictitious claims afforded by the fact that the average sum obtained upon each application is $1,300 leads me to suggest the propriety of making some special appropriation for the prevention of fraud. I advise appropriations for such internal improvements as the wisdom of Congress may deem to be of public importance. The necessity of improving the navigation of the Mississippi River justifies a special allusion to that subject. I suggest the adoption of some measure for the removal of obstructions which now impede the navigation of that great channel of commerce. In my letter accepting the nomination for the Vice-Presidency I stated that in my judgment-- No man should be the incumbent of an office the duties of which he is for any because unfit to perform; who is lacking in the ability, fidelity, or integrity which a proper administration of such office demands. This sentiment would doubtless meet with general acquiescence, but opinion has been widely divided upon the wisdom and practicability of the various reformatory schemes which have been suggested and of certain proposed regulations governing appointments to public office. The efficiency of such regulations has been distrusted mainly because they have seemed to exalt mere educational and abstract tests above general business capacity and even special fitness for the particular work in hand. It seems to me that the rules which should be applied to the management of the public service may properly conform in the main to such as regulate the conduct of successful private business: Original appointments should be based upon ascertained fitness. The tenure of office should be stable. Positions of responsibility should, so far as practicable, be filled by the promotion of worthy and efficient officers. The investigation of all complaints and the punishment of all official misconduct should be prompt and thorough. The views expressed in the foregoing letter are those which will govern my administration of the executive office. They are doubtless shared by all intelligent and patriotic citizens, however divergent in their opinions as to the best methods of putting them into practical operation. For example, the assertion that "original appointments should be based upon ascertained fitness" is not open to dispute. But the question how in practice such fitness can be most effectually ascertained is one which has for years excited interest and discussion. The measure which, with slight variations in its details, has lately been urged upon the attention of Congress and the Executive has as its principal feature the scheme of competitive examination. Save for certain exceptions, which need not here be specified, this plan would allow admission to the service only in its lowest grade, and would accordingly demand that all vacancies in higher positions should be filled by promotion alone. In these particulars it is in conformity with the existing civil-service system of Great Britain; and indeed the success which has attended that system in the country of its birth is the strongest argument which has been urged for its adoption here. The fact should not, however, be overlooked that there are certain features of the English system which have not generally been received with favor in this country, even among the foremost advocates of civil-service reform. Among them are: 1. A tenure of office winch is substantially a life tenure. 2. A limitation of the maximum age at which an applicant can enter the service, whereby all men in middle life or older are, with some exceptions, rigidly excluded. 3. A retiring allowance upon going out of office. These three elements are as important factors of the problem as any of the others. To eliminate them from the English system would effect a most radical change in its theory and practice. The avowed purpose of that system is to induce the educated young men of the country to devote their lives to public employment by an assurance that having once entered upon it they need never leave it, and that after voluntary retirement they shall be the recipients of an annual pension. That this system as an entirety has proved very successful in Great Britain seems to be generally conceded even by those who once opposed its adoption. To a statute which should incorporate all its essential features I should feel bound to give my approval; but whether it would be for the best interests of the public to fix upon an expedient for immediate and extensive application which embraces certain features of the English system, but excludes or ignores others of equal importance, may be seriously doubted, even by those who are impressed, as I am myself, with the grave importance of correcting the evils which inhere in the present methods of appointment. If, for example, the English rule which shuts out persons above the age of 25 years from a large number of public employments is not to be made an essential part of our own system, it is questionable whether the attainment of the highest number of marks at a competitive examination should be the criterion by which all applications for appointment should be put to test. And under similar conditions it may also be questioned whether admission to the service should be strictly limited to its lowest ranks. There are very many characteristics which go to make a model civil servant. Prominent among them are probity, industry, good sense, good habits, good temper, patience, order, courtesy, tact, self-reliance, manly deference to superior officers, and manly consideration for inferiors. The absence of these traits is not supplied by wide knowledge of books, or by promptitude in answering questions, or by any other quality likely to be brought to light by competitive examination. To make success in such a contest, therefore, an indispensable condition of public employment would very likely result in the practical exclusion of the older applicants, even though they might possess qualifications far superior to their younger and more brilliant competitors. These suggestions must not be regarded as evincing any spirit of opposition to the competitive plan, which has been to some extent successfully employed already, and which may hereafter vindicate the claim of its most earnest supporters; but it ought to be seriously considered whether the application of the same educational standard to persons of mature years and to young men fresh from school and college would not be likely to exalt mere intellectual proficiency above other qualities of equal or greater importance. Another feature of the proposed system is the selection by promotion of all officers of the Government above the lowest grade, except such as would fairly be regarded as exponents of the policy of the Executive and the principles of the dominant party. To afford encouragement to faithful public servants by exciting in their minds the hope of promotion if they are found to merit it is much to be desired. But would it be wise to adopt a rule so rigid as to permit no other mode of supplying the intermediate walks of the service? There are many persons who fill subordinate positions with great credit, but lack those qualities which are requisite for higher posts of duty; and, besides, the modes of thought and action of one whose service in a governmental bureau has been long continued are often so cramped by routine procedure as almost to disqualify him from instituting changes required by the public interests. An infusion of new blood from time to time into the middle ranks of the service might be very beneficial in its results. The subject under discussion is one of grave importance. The evils which are complained of can not be eradicated at once; the work must be gradual. The present English system is a growth of years, and was not created by a single stroke of executive or legislative action. Its beginnings are found in an order in council promulgated in 1855, and it was after patient and cautious scrutiny of its workings that fifteen years later it took its present shape. Five years after the issuance of the order in council, and at a time when resort had been had to competitive examinations as an experiment much more extensively than has yet been the case in this country, a select committee of the House of Commons made a report to that House which, declaring its approval of the competitive plan, deprecated, nevertheless, any precipitancy in its general adoption as likely to endanger its ultimate success. During this tentative period the results of the two methods of pass examination and competitive examination were closely watched and compared. It may be that before we confine ourselves upon this important question within the stringent bounds of statutory enactment we may profitably await the result of further inquiry and experiment. The submission of a portion of the nominations to a central board of examiners selected solely for testing the qualifications of applicants may perhaps, without resort to the competitive test, put an end to the mischiefs which attend the present system of appointment, and it may be feasible to vest in such a board a wide discretion to ascertain the characteristics and attainments of candidates in those particulars which I have already referred to as being no less important than mere intellectual attainment. If Congress should deem it advisable at the present session to establish competitive tests for admission to the service, no doubts such as have been suggested shall deter me from giving the measure my earnest support. And I urgently recommend, should there be a failure to pass any other act upon this subject, that an appropriation of $25,000 per year may be made for the enforcement of section 1753 of the Revised Statutes. With the aid thus afforded me I shall strive to execute the provisions of that law according to its letter and spirit. I am unwilling, in justice to the present civil servants of the Government, to dismiss this subject without declaring my dissent from the severe and almost indiscriminate censure with which they have been recently assailed. That they are as a class indolent, inefficient, and corrupt is a statement which has been often made and widely credited; but when the extent, variety, delicacy, and importance of their duties are considered the great majority of the employees of the Government are, in my judgment, deserving of high commendation. The continuing decline of the merchant marine of the United States is greatly to be deplored. In view of the fact that we furnish so large a proportion of the freights of the commercial world and that our shipments are steadily and rapidly increasing, it is because of surprise that not only is our navigation interest diminishing, but it is less than when our exports and imports were not half so large as now, either in bulk or value. There must be some peculiar hindrance to the development of this interest, or the enterprise and energy of American mechanics and capitalists would have kept this country at least abreast of our rivals in the friendly contest for ocean supremacy. The substitution of iron for wood and of steam for sail have wrought great revolutions in the carrying trade of the world; but these changes could not have been adverse to America if we had given to our navigation interests a portion of the aid and protection which have been so wisely bestowed upon our manufactures. I commend the whole subject to the wisdom of Congress, with the suggestion that no question of greater magnitude or farther reaching importance can engage their attention. In 1875 the Supreme Court of the United States declared unconstitutional the statutes of certain States which imposed upon shipowners or consignees a tax of $1.50 for each passenger arriving from a foreign country, or in lieu thereof required a bond to indemnify the State and local authorities against expense for the future relief or support of such passenger. Since this decision the expense attending the care and supervision of immigrants has fallen on the States at whose ports they have landed. As a large majority of such immigrants, immediately upon their arrival, proceed to the inland States and the Territories to seek permanent homes, it is manifestly unjust to impose upon the State whose shores they first reach the burden which it now bears. For this reason, and because of the national importance of the subject, I recommend legislation regarding the supervision and transitory care of immigrants at the ports of debarkation. I regret to state that the people of Alaska have reason to complain that they are as yet unprovided with any form of government by which life or property can be protected. While the extent of its population does not justify the application of the costly machinery of Territorial administration, there is immediate necessity for constituting such a form of government as will promote the education of the people and secure the administration of justice. The Senate at its last session passed a bill providing for the construction of a building for the Library of Congress, but it failed to become a law. The provision of suitable protection for this great collection of books and for the copyright department connected with it has become a subject of national importance and should receive prompt attention. The report of the Commissioners of the District of Columbia herewith transmitted will inform you fully of the condition of the affairs of the District. They urge the vital importance of legislation for the reclamation and improvement of the marshes and for the establishment of the harbor lines along the Potomac River front. It is represented that in their present condition these marshes seriously affect the health of the residents of the adjacent parts of the city, and that they greatly mar the general aspect of the park in which stands the Washington Monument. This improvement would add to that park and to the park south of the Executive Mansion a large area of valuable land, and would transform what is now believed to be a dangerous nuisance into an attractive landscape extending to the river front. They recommend the removal of the steam railway lines from the surface of the streets of the city and the location of the necessary depots in such places as may be convenient for the public accommodation, and they call attention to the deficiency of the water supply, which seriously affects the material prosperity of the city and the health and comfort of its inhabitants. I commend these subjects to your favorable consideration. The importance of timely legislation with respect to the ascertainment and declaration of the vote for Presidential electors was sharply called to the attention of the people more than four years ago. It is to be hoped that some well-defined measure may be devised before another national election which will render unnecessary a resort to any expedient of a temporary character for the determination of questions upon contested returns. Questions which concern the very existence of the Government and the liberties of the people were suggested by the prolonged illness of the late President and his consequent incapacity to perform the functions of his office. It is provided by the second article of the Constitution, in the fifth clause of its first section, that "in case of the removal of the President from office, or of his death, resignation, or inability to discharge the powers and duties of the said office, the same shall devolve on the Vice-President." What is the intendment of the Constitution in its specification of "inability to discharge the powers and duties of the said office" as one of the contingencies which calls the Vice-President to the exercise of Presidential functions? Is the inability limited in its nature to long-continued intellectual incapacity, or has it a broader import? What must be its extent and duration? How must its existence be established? Has the President whose inability is the subject of inquiry any voice in determining whether or not it exists, or is the decision of that momentous and delicate question confided to the Vice-President, or is it contemplated by the Constitution that Congress should provide by law precisely what should constitute inability and how and by what tribunal or authority it should be ascertained? If the inability proves to be temporary in its nature, and during its continuance the Vice-President lawfully exercises the functions of the Executive, by what tenure does he hold his office? Does he continue as President for the remainder of the four years' term? Or would the elected President, if his inability should cease in the interval, be empowered to resume his office? And if, having such lawful authority, he should exercise it, would the Vice-President be thereupon empowered to resume his powers and duties as such? I can not doubt that these important questions will receive your early and thoughtful consideration. Deeply impressed with the gravity of the responsibilities which have so unexpectedly devolved upon me, it will be my constant purpose to cooperate with you in such measures as will promote the glory of the country and the prosperity of its people.
an appalling calamity has befallen the american people since their chosen representatives last met in the halls where you are now assembled we might else recall with unalloyed content the rare prosperity with which throughout the year the nation has been blessed its harvests have been plenteous its varied industries have thriven the health of its people has been preserved it has maintained with foreign governments the undisturbed relations of amity and peace for these manifestations of his favor we owe to him who holds our destiny in his hands the tribute of our grateful devotion to that mysterious exercise of his will which has taken from us the loved and illustrious citizen who was but lately the head of the nation we bow in sorrow and submission the memory of his exalted character of his noble achievements and of his patriotic life will be treasured forever as a sacred possession of the whole people the announcement of his death drew from foreign governments and peoples tributes of sympathy and sorrow which history will record as signal tokens of the kinship of nations and the federation of mankind the feeling of good will between our own government and that of great britain was never more marked than at present in recognition of this pleasing fact i directed on the occasion of the late centennial celebration at yorktown that a salute be given to the british flag save for the correspondence to which i shall refer hereafter in relation to the proposed canal across the isthmus of panama little has occurred worthy of mention in the diplomatic relations of the two countries early in the year the fortune bay claims were satisfactorily settled by the british government paying in full the sum of pounds most of which has been already distributed as the terms of the settlement included compensation for injuries suffered by our fishermen at aspee bay there has been retained from the gross award a sum which is deemed adequate for those claims the participation of americans in the exhibitions at melbourne and sydney will be approvingly mentioned in the reports of the two exhibitions soon to be presented to congress they will disclose the readiness of our countrymen to make successful competition in distant fields of enterprise negotiations for an international copyright convention are in hopeful progress the surrender of sitting bull and his forces upon the canadian frontier has allayed apprehension although bodies of british indians still cross the border in quest of sustenance upon this subject a correspondence has been opened which promises an adequate understanding our troops have orders to avoid meanwhile all collisions with alien indians the presence at the yorktown celebration of representatives of the french republic and descendants of lafayette and of his gallant compatriots who were our allies in the revolution has served to strengthen the spirit of good will which has always existed between the two nations you will be furnished with the proceedings of the bimetallic conference held during the summer at the city of paris no accord was reached but a valuable interchange of views was had and the conference will next year be renewed at the electrical exhibition and congress also held at paris this country was creditably represented by eminent specialists who in the absence of an appropriation generously lent their efficient aid at the instance of the state department while our exhibitors in this almost distinctively american field of achievement have won several valuable awards i recommend that congress provide for the repayment of the personal expenses incurred in the public interest by the honorary commissioners and delegates no new questions respecting the status of our naturalized citizens in germany have arisen during the year and the causes of complaint especially in alsace and lorraine have practically ceased through the liberal action of the imperial government in accepting our views on the subject the application of the treaty of 1868 to the lately acquired rhenish provinces has received very earnest attention and a definite and lasting agreement on this point is confidently expected the participation of the descendants of baron von steuben in the yorktown festivities and their subsequent reception by their american kinsmen strikingly evinced the ties of good will which unite the german people and our own our intercourse with spain has been friendly an agreement concluded in february last fixes a term for the labors of the spanish and american claims commission the spanish government has been requested to pay the late awards of that commission and will it is believed accede to the request as promptly and courteously as on former occasions by recent legislation onerous fines have been imposed upon american shipping in spanish and colonial ports for slight irregularities in manifests one ease of hardship is specially worthy of attention the bark masonic bound for japan entered manila in distress and is there sought to be confiscated under spanish revenue laws for an alleged shortage in her transshipped cargo though efforts for her relief have thus far proved unavailing it is expected that the whole matter will be adjusted in a friendly spirit the senate resolutions of condolence on the assassination of the czar alexander ii were appropriately communicated to the russian government which in turn has expressed its sympathy in our late national bereavement it is desirable that our cordial relations with russia should be strengthened by proper engagements assuring to peaceable americans who visit the empire the consideration which is due to them as citizens of a friendly state this is especially needful with respect to american israelites whose classification with the native hebrews has evoked energetic remonstrances from this government a supplementary consular agreement with italy has been sanctioned and proclaimed which puts at rest conflicts of jurisdiction in the case of crimes on shipboard several important international conferences have been held in italy during the year at the geographical congress of venice the beneficence congress of milan and the hygienic congress of turin this country was represented by delegates from branches of the public service or by private citizens duly accredited in an honorary capacity it is hoped that congress will give such prominence to the results of their participation as they may seem to deserve the abolition of all discriminating duties against such colonial productions of the dutch east indies as are imported hither from holland has been already considered by congress i trust that at the present session the matter may be favorably concluded the insecurity of life and property in many parts of turkey has given rise to correspondence with the porte looking particularly to the better protection of american missionaries in the empire the condemned murderer of the eminent missionary justin parsons has not yet been executed although this government has repeatedly demanded that exemplary justice be done the swiss government has again solicited the good offices of our diplomatic and consular agents for the protection of its citizens in countries where it is not itself represented this request has within proper limits been granted our agents in switzerland have been instructed to protest against the conduct of the authorities of certain communes in permitting the emigration to this country of criminals and other objectionable persons several such persons through the cooperation of the commissioners of emigration at new york have been sent back by the steamers which brought them a continuance of this course may prove a more effectual remedy than diplomatic remonstrance treaties of commerce and navigation and for the regulation of consular privileges have been concluded with roumania and servia since their admission into the family of european states as is natural with contiguous states having like institutions and like aims of advancement and development the friendship of the united states and mexico has been constantly maintained this government has lost no occasion of encouraging the mexican government to a beneficial realization of the mutual advantages which will result from more intimate commercial intercourse and from the opening of the rich interior of mexico to railway enterprise i deem it important that means be provided to restrain the lawlessness unfortunately so common on the frontier and to suppress the forays of the reservation indians on either side of the rio grande the neighboring states of central america have preserved internal peace and their outward relations toward us have been those of intimate friendship there are encouraging signs of their growing disposition to subordinate their local interests to those which are common to them by reason of their geographical relations the boundary dispute between guatemala and mexico has afforded this government an opportunity to exercise its good offices for preventing a rupture between those states and for procuring a peaceable solution of the question i cherish strong hope that in view of our relations of amity with both countries our friendly counsels may prevail a special envoy of guatemala has brought to me the condolences of his government and people on the death of president garfield the costa rican government lately framed an engagement with colombia for settling by arbitration the boundary question between those countries providing that the post of arbitrator should be offered successively to the king of the belgians the king of spain and the president of the argentine confederation the king of the belgians has declined to act but i am not as yet advised of the action of the king of spain as we have certain interests in the disputed territory which are protected by our treaty engagements with one of the parties it is important that the arbitration should not without our consent affect our rights and this government has accordingly thought proper to make its views known to the parties to the agreement as well as to intimate them to the belgian and spanish governments the questions growing out of the proposed interoceanic waterway across the isthmus of panama are of grave national importance this government has not been unmindful of the solemn obligations imposed upon it by its compact of 1846 with colombia as the independent and sovereign mistress of the territory crossed by the canal and has sought to render them effective by fresh engagements with the colombian republic looking to their practical execution the negotiations to this end after they had reached what appeared to be a mutually satisfactory solution here were met in colombia by a disavowal of the powers which its envoy had assumed and by a proposal for renewed negotiation on a modified basis meanwhile this government learned that colombia had proposed to the european powers to join in a guaranty of the neutrality of the proposed panama canal a guaranty which would be in direct contravention of our obligation as the sole guarantor of the integrity of colombian territory and of the neutrality of the canal itself my lamented predecessor felt it his duty to place before the european powers the reasons which make the prior guaranty of the united states indispensable and for which the interjection of any foreign guaranty might be regarded as a superfluous and unfriendly act foreseeing the probable reliance of the british government on the provisions of the treaty of 1850 as affording room for a share in the guaranties which the united states covenanted with colombia four years before i have not hesitated to supplement the action of my predecessor by proposing to her majesty government the modification of that instrument and the abrogation of such clauses thereof as do not comport with the obligations of the united states toward colombia or with the vital needs of the two friendly parties to the compact this government sees with great concern the continuance of the hostile relations between chile bolivia and peru an early peace between these republics is much to be desired not only that they may themselves be spared further misery and bloodshed but because their continued antagonism threatens consequences which are in my judgment dangerous to the interests of republican government on this continent and calculated to destroy the best elements of our free and peaceful civilization as in the present excited condition of popular feeling in these countries there has been serious misapprehension of the position of the united states and as separate diplomatic intercourse with each through independent ministers is sometimes subject owing to the want of prompt reciprocal communication to temporary misunderstanding i have deemed it judicious at the present time to send a special envoy accredited to all and each of them and furnished with general instructions which will i trust enable him to bring these powers into friendly relations the government of venezuela maintains its attitude of warm friendship and continues with great regularity its payment of the monthly quota of the diplomatic debt without suggesting the direction in which congress should act i ask its attention to the pending questions affecting the distribution of the sums thus far received the relations between venezuela and france growing out of the same debt have been for some time past in an unsatisfactory state and this government as the neighbor and one of the largest creditors of venezuela has interposed its influence with the french government with the view of producing a friendly and honorable adjustment i regret that the commercial interests between the united states and brazil from which great advantages were hoped a year ago have suffered from the withdrawal of the american lines of communication between the brazilian ports and our own through the efforts of our minister resident at buenos ayres and the united states minister at santiago a treaty has been concluded between the argentine republic and chile disposing of the patagonian boundary question it is a matter of congratulation that our government has been afforded the opportunity of successfully exerting its good influence for the prevention of disagreements between these republics of the american continent i am glad to inform you that the treaties lately negotiated with china have been duly ratified on both sides and the exchange made at peking legislation is necessary to carry their provisions into effect the prompt and friendly spirit with which the chinese government at the request of the united states conceded the modification of existing treaties should secure careful regard for the interests and susceptibilities of that government in the enactment of any laws relating to chinese immigration those clauses of the treaties which forbid the participation of citizens or vessels of the united states in the opium trade will doubtless receive your approval they will attest the sincere interest which our people and government feel in the commendable efforts of the chinese government to put a stop to this demoralizing and destructive traffic in relation both to china and japan some changes are desirable in our present system of consular jurisdiction i hope at some future time to lay before you a scheme for its improvement in the entire east the intimacy between our own country and japan the most advanced of the eastern nations continues to be cordial i am advised that the emperor contemplates the establishment of full constitutional government and that he has already summoned a parliamentary congress for the purpose of effecting the change such a remarkable step toward complete assimilation with the western system can not fail to bring japan into closer and more beneficial relationship with ourselves as the chief pacific power a question has arisen in relation to the exercise in that country of the judicial functions conferred upon our ministers and consuls the indictment trial and conviction in the consular court at yokohama of john ross a merchant seaman on board an american vessel have made it necessary for the government to institute a careful examination into the nature and methods of this jurisdiction it appeared that ross was regularly shipped under the flag of the united states but was by birth a british subject my predecessor felt it his duty to maintain the position that during his service as a regularly shipped seaman on board an american merchant vessel ross was subject to the laws of that service and to the jurisdiction of the united states consular authorities i renew the recommendation which has been heretofore urged by the executive upon the attention of congress that after the deduction of such amount as may be found due to american citizens the balance of the indemnity funds heretofore obtained from china and japan and which are now in the hands of the state department be returned to the governments of those countries the king of hawaii in the course of his homeward return after a journey around the world has lately visited this country while our relations with that kingdom are friendly this government has viewed with concern the efforts to seek replenishment of the diminishing population of the islands from outward sources to a degree which may impair the native sovereignty and independence in which the united states was among the first to testify a lively interest relations of unimpaired amity have been maintained throughout the year with the respective governments of belgium denmark hayti paraguay and uruguay portugal and sweden and norway this may also be said of greece and ecuador although our relations with those states have for some years been severed by the withdrawal of appropriations for diplomatic representatives at athens and quito it seems expedient to restore those missions even on a reduced scale and i decidedly recommend such a course with respect to ecuador which is likely within the near future to play an important part among the nations of the southern pacific at its last extra session the senate called for the text of the geneva convention for the relief of the wounded in war i trust that this action foreshadows such interest in the subject as will result in the adhesion of the united states to that humane and commendable engagement i invite your attention to the propriety of adopting the new code of international rules for the prevention of collisions on the high seas and of conforming the domestic legislation of the united states thereto so that no confusion may arise from the application of conflicting rules in the case of vessels of different nationalities meeting in tidal waters these international rules differ but slightly from our own they have been adopted by the navy department for the governance of the war ships of the united states on the high seas and in foreign waters and through the action of the state department in disseminating the rules and in acquainting shipmasters with the option of conforming to them without the jurisdictional waters of the united states they are now very generally known and obeyed the state department still continues to publish to the country the trade and manufacturing reports received from its officers abroad the success of this course warrants its continuance and such appropriation as may be required to meet the rapidly increasing demand for these publications with special reference to the atlanta cotton exposition the october number of the reports was devoted to a valuable collection of papers on the trade of the world the international sanitary conference for which in 1879 congress made provision assembled in this city early in january last and its sessions were prolonged until march although it reached no specific conclusions affecting the future action of the participant powers the interchange of views proved to be most valuable the full protocols of the sessions have been already presented to the senate as pertinent to this general subject i call your attention to the operations of the national board of health established by act of congress approved march 3 1879 its sphere of duty was enlarged by the act of june 2 in the same year by the act the board was required to institute such measures as might be deemed necessary for preventing the introduction of contagious or infectious diseases from foreign countries into the united states or from one state into another the execution of the rules and regulations prepared by the board and approved by my predecessor has done much to arrest the progress of epidemic disease and has thus rendered substantial service to the nation the international sanitary conference to which i have referred adopted a form of a bill of health to be used by all vessels seeking to enter the ports of the countries whose representatives participated in its deliberations this form has since been prescribed by the national board of health and incorporated with its rules and regulations which have been approved by me in pursuance of law the health of the people is of supreme importance all measures looking to their protection against the spread of contagious diseases and to the increase of our sanitary knowledge for such purposes deserve attention of congress the report of the secretary of the treasury presents in detail a highly satisfactory exhibit of the state of the finances and the condition of the various branches of the public service administered by that department the ordinary revenues from all sources for the fiscal year ending june 30 1881 were the ordinary expenditures for the same period were leaving a surplus revenue of which was applied as follows the requirements of the sinking fund for the year amounted to which sum included a balance of not provided for during the previous fiscal year the sum of was applied to this fund which left a deficit of the increase of the revenues for 1881 over those of the previous year was it is estimated that the receipts during the present fiscal year will reach and the expenditures leaving a surplus of applicable to the sinking fund and the redemption of the public debt i approve the recommendation of the secretary of the treasury that provision be made for the early retirement of silver certificates and that the act requiring their issue be repealed they were issued in pursuance of the policy of the government to maintain silver at or near the gold standard and were accordingly made receivable for all customs taxes and public dues about millions of them are now outstanding they form an unnecessary addition to the paper currency a sufficient amount of which may be readily supplied by the national banks in accordance with the act of february 28 1878 the treasury department has monthly caused at least two millions in value of silver bullion to be coined into standard silver dollars one hundred and two millions of these dollars have been already coined while only about millions are in circulation for the reasons which he specifies i concur in the secretary recommendation that the provision for coinage of a fixed amount each month be repealed and that hereafter only so much be coined as shall be necessary to supply the demand the secretary advises that the issue of gold certificates should not for the present be resumed and suggests that the national banks may properly be forbidden by law to retire their currency except upon reasonable notice of their intention so to do such legislation would seem to be justified by the recent action of certain banks on the occasion referred to in the secretary report of the fifteen millions of fractional currency still outstanding only about eighty thousand has been redeemed the past year the suggestion that this amount may properly be dropped from future statements of the public debt seems worthy of approval so also does the suggestion of the secretary as to the advisability of relieving the calendar of the united states courts in the southern district of new york by the transfer to another tribunal of the numerous suits there pending against collectors the revenue from customs for the past fiscal year was an increase of over that of the year preceding one hundred and million thousand five hundred and dollars and cents of this amount was collected at the port of new york leaving as the amount collected at all the other ports of the country of this sum was collected on sugar melado and molasses on wool and its manufactures on iron and steel and manufactures thereof on manufactures of silk on manufactures of cotton and on wines and spirits making a total revenue from these sources of the expenses of collection for the past year were an increase over the preceding year of notwithstanding the increase in the revenue from customs over the preceding year the gross value of the imports including free goods decreased over the most marked decrease was in the value of unmanufactured wool and in that of scrap and pig iron the value of imported sugar on the other hand showed an increase of of steel rails of barley and of steel in bars ingots contrasted with the imports during the last fiscal year the exports were as follows compared with the previous year there was an increase of in the value of exports of merchandise and a decrease of in the value of imports the annual average of the excess of imports of merchandise over exports thereof for ten years previous to june 30 1873 was but for the last six years there has been an excess of exports over imports of merchandise amounting to an annual average of the specie value of the exports of domestic merchandise was in 1870 and in 1881 an increase of or 135 per cent the value of imports was in 1870 and in 1881 an increase of or 47 per cent during each year from 1862 to 1879 inclusive the exports of specie exceeded the imports the largest excess of such exports over imports was reached during the year 1864 when it amounted to but during the year ended june 30 1880 the imports of coin and bullion exceeded the exports by and during the last fiscal year the excess of imports over exports was in the last annual report of the secretary of the treasury the attention of congress was called to the fact that in 5 per cent bonds and in 6 per cent bonds would become redeemable during the year and congress was asked to authorize the refunding of these bonds at a lower rate of interest the bill for such refunding having failed to become a law the secretary of the treasury in april last notified the holders of the 6 per cent bonds then outstanding that the bonds would be paid at par on the 1st day of july following or that they might be continued at the pleasure of the government to bear interest at the rate of 3 per cent per annum under this notice of the 6 per cent bonds were continued at the lower rate and were redeemed in the month of may a like notice was given respecting the redemption or continuance of the of 5 per cent bonds then outstanding and of these were continued at 3 per cent per annum and redeemed the 6 per cent bonds of the loan of february 8 1861 and of the oregon war debt amounting together to having matured during the year the secretary of the treasury gave notice of his intention to redeem the same and such as have been presented have been paid from the surplus revenues there have also been redeemed at par of the 3 per cent continued bonds making a total of bonds redeemed or which have ceased to bear interest during the year of the reduction of the annual interest on the public debt through these transactions is as follows the 3 per cent bonds being payable at the pleasure of the government are available for the investment of surplus revenues without the payment of premiums unless these bonds can be funded at a much lower rate of interest than they now bear i agree with the secretary of the treasury that no legislation respecting them is desirable it is a matter for congratulation that the business of the country has been so prosperous during the past year as to yield by taxation a large surplus of income to the government if the revenue laws remain unchanged this surplus must year by year increase on account of the reduction of the public debt and its burden of interest and because of the rapid increase of our population in 1860 just prior to the institution of our system our population but slightly exceeded by the census of 1880 it is now found to exceed it is estimated that even if the annual receipts and expenditures should continue as at present the entire debt could be paid in ten years in view however of the heavy load of taxation which our people have already borne we may well consider whether it is not the part of wisdom to reduce the revenues even if we delay a little the payment of the debt it seems to me that the time has arrived when the people may justly demand some relief from their present onerous burden and that by due economy in the various branches of the public service this may readily be afforded i therefore concur with the secretary in recommending the abolition of all taxes except those upon tobacco in its various forms and upon distilled spirits and fermented liquors and except also the special tax upon the manufacturers of and dealers in such articles the retention of the latter tax is desirable as affording the officers of the government a proper supervision of these articles for the prevention of fraud i agree with the secretary of the treasury that the law imposing a stamp tax upon matches proprietary articles playing cards cheeks and drafts may with propriety be repealed and the law also by which banks and bankers are assessed upon their capital and deposits there seems to be a general sentiment in favor of this course in the present condition of our revenues the tax upon deposits is especially unjust it was never imposed in this country until it was demanded by the necessities of war and was never exacted i believe in any other country even in its greatest exigencies banks are required to secure their circulation by pledging with the treasurer of the united states bonds of the general government the interest upon these bonds which at the time when the tax was imposed was 6 per cent is now in most instances 3 per cent besides the entire circulation was originally limited by law and no increase was allowable when the existing banks had practically a monopoly of the business there was force in the suggestion that for the franchise to the favored grantees the government might very properly exact a tax on circulation but for years the system has been free and the amount of circulation regulated by the public demand the retention of this tax has been suggested as a means of reimbursing the government for the expense of printing and furnishing the circulating notes if the tax should be repealed it would certainly seem proper to require the national banks to pay the amount of such expense to the comptroller of the currency it is perhaps doubtful whether the immediate reduction of the rate of taxation upon liquors and tobacco is advisable especially in view of the drain upon the treasury which must attend the payment of arrears of pensions a comparison however of the amount of taxes collected under the varying rates of taxation which have at different times prevailed suggests the intimation that some reduction may soon be made without material diminution of the revenue the tariff laws also need revision but that a due regard may be paid to the conflicting interests of our citizens important changes should be made with caution if a careful revision can not be made at this session a commission such as was lately approved by the senate and is now recommended by the secretary of the treasury would doubtless lighten the labors of congress whenever this subject shall be brought to its consideration the accompanying report of the secretary of war will make known to you the operations of that department for the past year he suggests measures for promoting the efficiency of the army without adding to the number of its officers and recommends the legislation necessary to increase the number of enlisted men to the maximum allowed by law this he deems necessary to maintain quietude on our frontier to preserve peace and suppress disorder and marauding in new settlements to protect settlers and their property against indians and indians against the encroachments of intruders and to enable peaceable immigrants to establish homes in the most remote parts of our country the army is now necessarily scattered over such a vast extent of territory that whenever an outbreak occurs reenforcements must be hurried from many quarters over great distances and always at heavy cost for transportation of men horses wagons and supplies i concur in the recommendations of the secretary for increasing the army to the strength of enlisted men it appears by the secretary report that in the absence of disturbances on the frontier the troops have been actively employed in collecting the indians hitherto hostile and locating them on their proper reservations that sitting bull and his adherents are now prisoners at fort randall that the utes have been moved to their new reservation in utah that during the recent outbreak of the apaches it was necessary to reenforce the garrisons in arizona by troops withdrawn from new mexico and that some of the apaches are now held prisoners for trial while some have escaped and the majority of the tribe are now on their reservation there is need of legislation to prevent intrusion upon the lands set apart for the indians a large military force at great expense is now required to patrol the boundary line between kansas and the indian territory the only punishment that can at present be inflicted is the forcible removal of the intruder and the imposition of a pecuniary fine which in most cases it is impossible to collect there should be a penalty by imprisonment in such cases the separate organization of the signal service is urged by the secretary of war and a full statement of the advantages of such permanent organization is presented in the report of the chief signal officer a detailed account of the useful work performed by the signal corps and the weather bureau is also given in that report i ask attention to the statements of the secretary of war regarding the requisitions frequently made by the indian bureau upon the subsistence department of the army for the casual support of bands and tribes of indians whose appropriations are exhausted the war department should not be left by reason of inadequate provision for the indian bureau to contribute for the maintenance of indians the report of the chief of engineers furnishes a detailed account of the operations for the improvement of rivers and harbors i commend to your attention the suggestions contained in this report in regard to the condition of our fortifications especially our coast defenses and recommend an increase of the strength of the engineer battalion by which the efficiency of our torpedo system would be improved i also call your attention to the remarks upon the improvement of the south pass of the mississippi river the proposed free bridge over the potomac river at georgetown the importance of completing at an early day the north wing of the war department building and other recommendations of the secretary of war which appear in his report the actual expenditures of that department for the fiscal year ending june 30 1881 were the appropriations for the year 1882 were the estimates for 1883 are the report of the secretary of the navy exhibits the condition of that branch of the service and presents valuable suggestions for its improvement i call your especial attention also to the appended report of the advisory board which he convened to devise suitable measures for increasing the efficiency of the navy and particularly to report as to the character and number of vessels necessary to place it upon a footing commensurate with the necessities of the government i can not too strongly urge upon you my conviction that every consideration of national safety economy and honor imperatively demands a thorough rehabilitation of our navy with a full appreciation of the fact that compliance with the suggestions of the head of that department and of the advisory board must involve a large expenditure of the public moneys i earnestly recommend such appropriations as will accomplish an end which seems to me so desirable nothing can be more inconsistent with true public economy than withholding the means necessary to accomplish the objects intrusted by the constitution to the national legislature one of those objects and one which is of paramount importance is declared by our fundamental law to be the provision for the common defense surely nothing is more essential to the defense of the united states and of all our people than the efficiency of our navy we have for many years maintained with foreign governments the relations of honorable peace and that such relations may be permanent is desired by every patriotic citizen of the republic but if we heed the teachings of history we shall not forget that in the life of every nation emergencies may arise when a resort to arms can alone save it from dishonor no danger from abroad now threatens this people nor have we any because to distrust the friendly professions of other governments but for avoiding as well as for repelling dangers that may threaten us in the future we must be prepared to enforce any policy which we think wise to adopt we must be ready to defend our harbors against aggression to protect by the distribution of our ships of war over the highways of commerce the varied interests of our foreign trade and the persons and property of our citizens abroad to maintain everywhere the honor of our flag and the distinguished position which we may rightfully claim among the nations of the world the report of the is a gratifying exhibit of the growth and efficiency of the postal service the receipts from postage and other ordinary sources during the past fiscal year were the receipts from the business were making a total of the expenditure for the fiscal year was the deficit supplied out of the general treasury was or per cent of the amount expended the receipts were in excess of those of the previous year and in excess of the estimate made two years ago before the present period of business prosperity had fairly begun the whole number of letters mailed in this country in the last fiscal year exceeded the registry system is reported to be in excellent condition having been remodeled during the past four years with good results the amount of registration fees collected during the last fiscal year was an increase over the fiscal year ending june 30 1877 of the entire number of letters and packages registered during the year was of which only were lost or destroyed in transit the operations of the system are multiplying yearly under the impulse of immigration of the rapid development of the newer states and territories and the consequent demand for additional means of intercommunication and exchange during the past year 338 additional offices have been established making a total of in operation at the date of this report during the year the domestic money orders aggregated in value a modification of the system is suggested reducing the fees for money orders not exceeding 5 from 10 cents to 5 cents and making the maximum limit 100 in place of 50 legislation for the disposition of unclaimed money orders in the possession of the department is recommended in view of the fact that their total value now exceeds the attention of congress is again invited to the subject of establishing a system of savings depositories in connection with the department the statistics of mail transportation show that during the past year railroad routes have been increased in length miles and in cost while steamboat routes have been decreased in length miles and in cost the star routes have been decreased in length miles and in cost nearly all of the more expensive routes have been superseded by railroad service the cost of the star service must therefore rapidly decrease in the western states and territories the however calls attention to the constantly increasing cost of the railway mail service as a serious difficulty in the way of making the department our postal intercourse with foreign countries has kept pace with the growth of the domestic service within the past year several countries and colonies have declared their adhesion to the postal union it now includes all those which have an organized postal service except bolivia costa rica new zealand and the british colonies in australia as has been already stated great reductions have recently been made in the expense of the service the investigations of the department of justice and the department have resulted in the presentation of indictments against persons formerly connected with that service accusing them of offenses against the united states i have enjoined upon the officials who are charged with the conduct of the cases on the part of the government and upon the eminent counsel who before my accession to the presidency were called to their assistance the duty of prosecuting with the utmost vigor of the law all persons who may be found chargeable with frauds upon the postal service the acting calls attention to the necessity of modifying the present system of the courts of the united states a necessity due to the large increase of business especially in the supreme court litigation in our federal tribunals became greatly expanded after the close of the late war so long as that expansion might be attributable to the abnormal condition in which the community found itself immediately after the return of peace prudence required that no change be made in the constitution of our judicial tribunals but it has now become apparent that an immense increase of litigation has directly resulted from the wonderful growth and development of the country there is no ground for belief that the business of the united states courts will ever be less in volume than at present indeed that it is likely to be much greater is generally recognized by the bench and bar in view of the fact that congress has already given much consideration to this subject i make no suggestion as to detail but express the hope that your deliberations may result in such legislation as will give early relief to our overburdened courts the acting also calls attention to the disturbance of the public tranquillity during the past year in the territory of arizona a band of armed desperadoes known as cowboys probably numbering from fifty to one hundred men have been engaged for months in committing acts of lawlessness and brutality which the local authorities have been unable to repress the depredations of these cowboys have also extended into mexico which the marauders reach from the arizona frontier with every disposition to meet the exigencies of the case i am embarrassed by lack of authority to deal with them effectually the punishment of crimes committed within arizona should ordinarily of course be left to the territorial authorities but it is worthy consideration whether acts which necessarily tend to embroil the united states with neighboring governments should not be declared crimes against the united states some of the incursions alluded to may perhaps be within the scope of the law you revised statutes sec 5286 forbidding military expeditions or enterprises against friendly states but in view of the speedy assembling of your body i have preferred to await such legislation as in your wisdom the occasion may seem to demand it may perhaps be thought proper to provide that the setting on foot within our own territory of brigandage and armed marauding expeditions against friendly nations and their citizens shall be punishable as an offense against the united states i will add that in the event of a request from the territorial government for protection by the united states against domestic violence this government would be powerless to render assistance the act of 1795 chapter 36 passed at a time when territorial governments received little attention from congress enforced this duty of the united states only as to the state governments but the act of 1807 chapter 39 applied also to territories this law seems to have remained in force until the revision of the statutes when the provision for the territories was dropped i am not advised whether this alteration was intentional or accidental but as it seems to me that the territories should be offered the protection which is accorded to the staten by the constitution i suggest legislation to that end it seems to me too that whatever views may prevail as to the policy of recent legislation by which the army has ceased to be a part of the posse comitatus an exception might well be made for permitting the military to assist the civil territorial authorities in enforcing the laws of the united states this use of the army would not seem to be within the alleged evil against which that legislation was aimed from sparseness of population and other circumstances it is often quite impracticable to summon a civil posse in places where officers of justice require assistance and where a military force is within easy reach the report of the secretary of the interior with accompanying documents presents an elaborate account of the business of that department a summary of it would be too extended for this place i ask your careful attention to the report itself prominent among the matters which challenge the attention of congress at its present session is the management of our indian affairs while this question has been a because of trouble and embarrassment from the infancy of the government it is but recently that any effort has been made for its solution at once serious determined consistent and promising success it has been easier to resort to convenient makeshifts for tiding over temporary difficulties than to grapple with the great permanent problem and accordingly the easier course has almost invariably been pursued it was natural at a time when the national territory seemed almost illimitable and contained many millions of acres far outside the bounds of civilized settlements that a policy should have been initiated which more than aught else has been the fruitful source of our indian complications i refer of course to the policy of dealing with the various indian tribes as separate nationalities of relegating them by treaty stipulations to the occupancy of immense reservations in the west and of encouraging them to live a savage life undisturbed by any earnest and efforts to bring them under the influences of civilization the unsatisfactory results which have sprung from this policy are becoming apparent to all as the white settlements have crowded the borders of the reservations the indians sometimes contentedly and sometimes against their will have been transferred to other hunting grounds from which they have again been dislodged whenever their homes have been desired by the adventurous settlers these removals and the frontier collisions by which they have often been preceded have led to frequent and disastrous conflicts between the races it is profitless to discuss here which of them has been chiefly responsible for the disturbances whose recital occupies so large a space upon the pages of our history we have to deal with the appalling fact that though thousands of lives have been sacrificed and hundreds of millions of dollars expended in the attempt to solve the indian problem it has until within the past few years seemed scarcely nearer a solution than it was half a century ago but the government has of late been cautiously but steadily feeling its way to the adoption of a policy which has already produced gratifying results and which in my judgment is likely if congress and the executive accord in its support to relieve us ere long from the difficulties which have hitherto beset us for the success of the efforts now making to introduce among the indians the customs and pursuits of civilized life and gradually to absorb them into the mass of our citizens sharing their rights and holden to their responsibilities there is imperative need for legislative action my suggestions in that regard will be chiefly such as have been already called to the attention of congress and have received to some extent its consideration first i recommend the passage of an act making the laws of the various states and territories applicable to the indian reservations within their borders and extending the laws of the state of arkansas to the portion of the indian territory not occupied by the five civilized tribes the indian should receive the protection of the law he should be allowed to maintain in court his rights of person and property he has repeatedly begged for this privilege its exercise would be very valuable to him in his progress toward civilization second of even greater importance is a measure which has been frequently recommended by my predecessors in office and in furtherance of which several bills have been from time to time introduced in both houses of congress the enactment of a general law permitting the allotment in severalty to such indians at least as desire it of a reasonable quantity of land secured to them by patent and for their own protection made inalienable for twenty or years is demanded for their present welfare and their permanent advancement in return for such considerate action on the part of the government there is reason to believe that the indians in large numbers would be persuaded to sever their tribal relations and to engage at once in agricultural pursuits many of them realize the fact that their hunting days are over and that it is now for their best interests to conform their manner of life to the new order of things by no greater inducement than the assurance of permanent title to the soil can they be led to engage in the occupation of tilling it the reports of their increasing interest in husbandry justify the hope and belief that the enactment of such a statute as i recommend would be at once attended with gratifying results a resort to the allotment system would have a direct and powerful influence in dissolving the tribal bond which is so prominent a feature of savage life and which tends so strongly to perpetuate it third i advise a liberal appropriation for the support of indian schools because of my confident belief that such a course is consistent with the wisest economy even among the most uncultivated indian tribes there is reported to be a general and urgent desire on the part of the chiefs and older members for the education of their children it is unfortunate in view of this fact that during the past year the means which have been at the command of the interior department for the purpose of indian instruction have proved to be utterly inadequate the success of the schools which are in operation at hampton carlisle and forest grove should not only encourage a more generous provision for the support of those institutions but should prompt the establishment of others of a similar character they are doubtless much more potent for good than the day schools upon the reservation as the pupils are altogether separated from the surroundings of savage life and brought into constant contact with civilization there are many other phases of this subject which are of great interest but which can not be included within the becoming limits of this communication they are discussed ably in the reports of the secretary of the interior and the commissioner of indian affairs for many years the executive in his annual message to congress has urged the necessity of stringent legislation for the suppression of polygamy in the territories and especially in the territory of utah the existing statute for the punishment of this odious crime so revolting to the moral and religious sense of christendom has been persistently and contemptuously violated ever since its enactment indeed in spite of commendable efforts on the part of the authorities who represent the united states in that territory the law has in very rare instances been enforced and for a because to which reference will presently be made is practically a dead letter the fact that adherents of the mormon church which rests upon polygamy as its corner stone have recently been peopling in large numbers idaho arizona and other of our western territories is well calculated to excite the liveliest interest and apprehension it imposes upon congress and the executive the duty of arraying against this barbarous system all the power which under the constitution and the law they can wield for its destruction reference has been already made to the obstacles which the united states officers have encountered in their efforts to punish violations of law prominent among these obstacles is the difficulty of procuring legal evidence sufficient to warrant a conviction even in the case of the most notorious offenders your attention is called to a recent opinion of the supreme court of the united states explaining its judgment of reversal in the case of miles who had been convicted of bigamy in utah the court refers to the fact that the secrecy attending the celebration of marriages in that territory makes the proof of polygamy very difficult and the propriety is suggested of modifying the law of evidence which now makes a wife incompetent to testify against her husband this suggestion is approved i recommend also the passage of an act providing that in the territories of the united states the fact that a woman has been married to a person charged with bigamy shall not disqualify her as a witness upon his trial for that offense i further recommend legislation by which any person solemnizing a marriage in any of the territories shall be required under stringent penalties for neglect or refusal to file a certificate of such marriage in the supreme court of the territory doubtless congress may devise other practicable measures for obviating the difficulties which have hitherto attended the efforts to suppress this iniquity i assure you of my determined purpose to cooperate with you in any lawful and discreet measures which may be proposed to that end although our system of government does not contemplate that the nation should provide or support a system for the education of our people no measures calculated to promote that general intelligence and virtue upon which the perpetuity of our institutions so greatly depends have ever been regarded with indifference by congress or the executive a large portion of the public domain has been from time to time devoted to the promotion of education there is now a special reason why by setting apart the proceeds of its sales of public lands or by some other course the government should aid the work of education many who now exercise the right of suffrage are unable to read the ballot which they cast upon many who had just emerged from a condition of slavery were suddenly devolved the responsibilities of citizenship in that portion of the country most impoverished by war i have been pleased to learn from the report of the commissioner of education that there has lately been a commendable increase of interest and effort for their instruction but all that can be done by local legislation and private generosity should be supplemented by such aid as can be constitutionally afforded by the national government i would suggest that if any fund be dedicated to this purpose it may be wisely distributed in the different states according to the ratio of illiteracy as by this means those localities which are most in need of such assistance will reap its special benefits the report of the commissioner of agriculture exhibits the results of the experiments in which that department has been engaged during the past year and makes important suggestions in reference to the agricultural development of the country the steady increase of our population and the consequent addition to the number of those engaging in the pursuit of husbandry are giving to this department a growing dignity and importance the commissioner suggestions touching its capacity for greater usefulness deserve attention as it more and more commends itself to the interests which it was created to promote it appears from the report of the commissioner of pensions that since 1860 original pension claims have been filed of these have been allowed and inscribed on the pension roll have been rejected and abandoned being per cent of the whole number of claims settled there are now pending for settlement original pension claims of which were filed prior to july 1 1880 these when allowed will involve the payment of arrears from the date of discharge in case of an invalid and from date of death or termination of a prior right in all other cases from all the data obtainable it is estimated that 15 per cent of the number of claims now pending will be rejected or abandoned this would show the probable rejection of cases and the probable admission of about claims all of which involve the payment of arrears of pension with the present force employed the number of adjudications remaining the same and no new business intervening this number of claims could be acted upon in a period of six years and taking january 1 1884 as a near period from which to estimate in each case an average amount of arrears it is found that every case allowed would require for the first payment upon it the sum of multiplying this amount by the whole number of probable admissions gives as the sum required for first payment this represents the sum which must be paid upon claims which were filed before july 1 1880 and are now pending and entitled to the benefits of the arrears act from this amount may be deducted from ten to fifteen millions for cases where the claimant dying there is no person who under the law would be entitled to succeed to the pension leaving as the probable amount to be paid in these estimates no account has been taken of the cases filed since june 30 1880 and now pending which must receive attention as current business but which do not involve the payment of any arrears beyond the date of filing the claim of this number it is estimated that 86 per cent will be allowed as has been stated with the present force of the pension bureau 675 clerks it is estimated that it will take six years to dispose of the claims now pending it is stated by the commissioner of pensions that by an addition of 250 clerks increasing the adjudicating force rather than the mechanical double the amount of work could be accomplished so that these cases could be acted upon within three years aside from the considerations of justice which may be urged for a speedy settlement of the claims now on the files of the pension office it is no less important on the score of economy inasmuch as fully of the clerical force of the office is now wholly occupied in giving attention to correspondence with the thousands of claimants whose cases have been on the files for the past eighteen years the fact that a sum so enormous must be expended by the government to meet demands for arrears of pensions is an admonition to congress and the executive to give cautious consideration to any similar project in the future the great temptation to the presentation of fictitious claims afforded by the fact that the average sum obtained upon each application is leads me to suggest the propriety of making some special appropriation for the prevention of fraud i advise appropriations for such internal improvements as the wisdom of congress may deem to be of public importance the necessity of improving the navigation of the mississippi river justifies a special allusion to that subject i suggest the adoption of some measure for the removal of obstructions which now impede the navigation of that great channel of commerce in my letter accepting the nomination for the i stated that in my judgment no man should be the incumbent of an office the duties of which he is for any because unfit to perform who is lacking in the ability fidelity or integrity which a proper administration of such office demands this sentiment would doubtless meet with general acquiescence but opinion has been widely divided upon the wisdom and practicability of the various reformatory schemes which have been suggested and of certain proposed regulations governing appointments to public office the efficiency of such regulations has been distrusted mainly because they have seemed to exalt mere educational and abstract tests above general business capacity and even special fitness for the particular work in hand it seems to me that the rules which should be applied to the management of the public service may properly conform in the main to such as regulate the conduct of successful private business original appointments should be based upon ascertained fitness the tenure of office should be stable positions of responsibility should so far as practicable be filled by the promotion of worthy and efficient officers the investigation of all complaints and the punishment of all official misconduct should be prompt and thorough the views expressed in the foregoing letter are those which will govern my administration of the executive office they are doubtless shared by all intelligent and patriotic citizens however divergent in their opinions as to the best methods of putting them into practical operation for example the assertion that original appointments should be based upon ascertained fitness is not open to dispute but the question how in practice such fitness can be most effectually ascertained is one which has for years excited interest and discussion the measure which with slight variations in its details has lately been urged upon the attention of congress and the executive has as its principal feature the scheme of competitive examination save for certain exceptions which need not here be specified this plan would allow admission to the service only in its lowest grade and would accordingly demand that all vacancies in higher positions should be filled by promotion alone in these particulars it is in conformity with the existing system of great britain and indeed the success which has attended that system in the country of its birth is the strongest argument which has been urged for its adoption here the fact should not however be overlooked that there are certain features of the english system which have not generally been received with favor in this country even among the foremost advocates of reform among them are 1 a tenure of office winch is substantially a life tenure 2 a limitation of the maximum age at which an applicant can enter the service whereby all men in middle life or older are with some exceptions rigidly excluded 3 a retiring allowance upon going out of office these three elements are as important factors of the problem as any of the others to eliminate them from the english system would effect a most radical change in its theory and practice the avowed purpose of that system is to induce the educated young men of the country to devote their lives to public employment by an assurance that having once entered upon it they need never leave it and that after voluntary retirement they shall be the recipients of an annual pension that this system as an entirety has proved very successful in great britain seems to be generally conceded even by those who once opposed its adoption to a statute which should incorporate all its essential features i should feel bound to give my approval but whether it would be for the best interests of the public to fix upon an expedient for immediate and extensive application which embraces certain features of the english system but excludes or ignores others of equal importance may be seriously doubted even by those who are impressed as i am myself with the grave importance of correcting the evils which inhere in the present methods of appointment if for example the english rule which shuts out persons above the age of 25 years from a large number of public employments is not to be made an essential part of our own system it is questionable whether the attainment of the highest number of marks at a competitive examination should be the criterion by which all applications for appointment should be put to test and under similar conditions it may also be questioned whether admission to the service should be strictly limited to its lowest ranks there are very many characteristics which go to make a model civil servant prominent among them are probity industry good sense good habits good temper patience order courtesy tact manly deference to superior officers and manly consideration for inferiors the absence of these traits is not supplied by wide knowledge of books or by promptitude in answering questions or by any other quality likely to be brought to light by competitive examination to make success in such a contest therefore an indispensable condition of public employment would very likely result in the practical exclusion of the older applicants even though they might possess qualifications far superior to their younger and more brilliant competitors these suggestions must not be regarded as evincing any spirit of opposition to the competitive plan which has been to some extent successfully employed already and which may hereafter vindicate the claim of its most earnest supporters but it ought to be seriously considered whether the application of the same educational standard to persons of mature years and to young men fresh from school and college would not be likely to exalt mere intellectual proficiency above other qualities of equal or greater importance another feature of the proposed system is the selection by promotion of all officers of the government above the lowest grade except such as would fairly be regarded as exponents of the policy of the executive and the principles of the dominant party to afford encouragement to faithful public servants by exciting in their minds the hope of promotion if they are found to merit it is much to be desired but would it be wise to adopt a rule so rigid as to permit no other mode of supplying the intermediate walks of the service there are many persons who fill subordinate positions with great credit but lack those qualities which are requisite for higher posts of duty and besides the modes of thought and action of one whose service in a governmental bureau has been long continued are often so cramped by routine procedure as almost to disqualify him from instituting changes required by the public interests an infusion of new blood from time to time into the middle ranks of the service might be very beneficial in its results the subject under discussion is one of grave importance the evils which are complained of can not be eradicated at once the work must be gradual the present english system is a growth of years and was not created by a single stroke of executive or legislative action its beginnings are found in an order in council promulgated in 1855 and it was after patient and cautious scrutiny of its workings that fifteen years later it took its present shape five years after the issuance of the order in council and at a time when resort had been had to competitive examinations as an experiment much more extensively than has yet been the case in this country a select committee of the house of commons made a report to that house which declaring its approval of the competitive plan deprecated nevertheless any precipitancy in its general adoption as likely to endanger its ultimate success during this tentative period the results of the two methods of pass examination and competitive examination were closely watched and compared it may be that before we confine ourselves upon this important question within the stringent bounds of statutory enactment we may profitably await the result of further inquiry and experiment the submission of a portion of the nominations to a central board of examiners selected solely for testing the qualifications of applicants may perhaps without resort to the competitive test put an end to the mischiefs which attend the present system of appointment and it may be feasible to vest in such a board a wide discretion to ascertain the characteristics and attainments of candidates in those particulars which i have already referred to as being no less important than mere intellectual attainment if congress should deem it advisable at the present session to establish competitive tests for admission to the service no doubts such as have been suggested shall deter me from giving the measure my earnest support and i urgently recommend should there be a failure to pass any other act upon this subject that an appropriation of per year may be made for the enforcement of section 1753 of the revised statutes with the aid thus afforded me i shall strive to execute the provisions of that law according to its letter and spirit i am unwilling in justice to the present civil servants of the government to dismiss this subject without declaring my dissent from the severe and almost indiscriminate censure with which they have been recently assailed that they are as a class indolent inefficient and corrupt is a statement which has been often made and widely credited but when the extent variety delicacy and importance of their duties are considered the great majority of the employees of the government are in my judgment deserving of high commendation the continuing decline of the merchant marine of the united states is greatly to be deplored in view of the fact that we furnish so large a proportion of the freights of the commercial world and that our shipments are steadily and rapidly increasing it is because of surprise that not only is our navigation interest diminishing but it is less than when our exports and imports were not half so large as now either in bulk or value there must be some peculiar hindrance to the development of this interest or the enterprise and energy of american mechanics and capitalists would have kept this country at least abreast of our rivals in the friendly contest for ocean supremacy the substitution of iron for wood and of steam for sail have wrought great revolutions in the carrying trade of the world but these changes could not have been adverse to america if we had given to our navigation interests a portion of the aid and protection which have been so wisely bestowed upon our manufactures i commend the whole subject to the wisdom of congress with the suggestion that no question of greater magnitude or farther reaching importance can engage their attention in 1875 the supreme court of the united states declared unconstitutional the statutes of certain states which imposed upon shipowners or consignees a tax of for each passenger arriving from a foreign country or in lieu thereof required a bond to indemnify the state and local authorities against expense for the future relief or support of such passenger since this decision the expense attending the care and supervision of immigrants has fallen on the states at whose ports they have landed as a large majority of such immigrants immediately upon their arrival proceed to the inland states and the territories to seek permanent homes it is manifestly unjust to impose upon the state whose shores they first reach the burden which it now bears for this reason and because of the national importance of the subject i recommend legislation regarding the supervision and transitory care of immigrants at the ports of debarkation i regret to state that the people of alaska have reason to complain that they are as yet unprovided with any form of government by which life or property can be protected while the extent of its population does not justify the application of the costly machinery of territorial administration there is immediate necessity for constituting such a form of government as will promote the education of the people and secure the administration of justice the senate at its last session passed a bill providing for the construction of a building for the library of congress but it failed to become a law the provision of suitable protection for this great collection of books and for the copyright department connected with it has become a subject of national importance and should receive prompt attention the report of the commissioners of the district of columbia herewith transmitted will inform you fully of the condition of the affairs of the district they urge the vital importance of legislation for the reclamation and improvement of the marshes and for the establishment of the harbor lines along the potomac river front it is represented that in their present condition these marshes seriously affect the health of the residents of the adjacent parts of the city and that they greatly mar the general aspect of the park in which stands the washington monument this improvement would add to that park and to the park south of the executive mansion a large area of valuable land and would transform what is now believed to be a dangerous nuisance into an attractive landscape extending to the river front they recommend the removal of the steam railway lines from the surface of the streets of the city and the location of the necessary depots in such places as may be convenient for the public accommodation and they call attention to the deficiency of the water supply which seriously affects the material prosperity of the city and the health and comfort of its inhabitants i commend these subjects to your favorable consideration the importance of timely legislation with respect to the ascertainment and declaration of the vote for presidential electors was sharply called to the attention of the people more than four years ago it is to be hoped that some measure may be devised before another national election which will render unnecessary a resort to any expedient of a temporary character for the determination of questions upon contested returns questions which concern the very existence of the government and the liberties of the people were suggested by the prolonged illness of the late president and his consequent incapacity to perform the functions of his office it is provided by the second article of the constitution in the fifth clause of its first section that in case of the removal of the president from office or of his death resignation or inability to discharge the powers and duties of the said office the same shall devolve on the what is the intendment of the constitution in its specification of inability to discharge the powers and duties of the said office as one of the contingencies which calls the to the exercise of presidential functions is the inability limited in its nature to intellectual incapacity or has it a broader import what must be its extent and duration how must its existence be established has the president whose inability is the subject of inquiry any voice in determining whether or not it exists or is the decision of that momentous and delicate question confided to the or is it contemplated by the constitution that congress should provide by law precisely what should constitute inability and how and by what tribunal or authority it should be ascertained if the inability proves to be temporary in its nature and during its continuance the lawfully exercises the functions of the executive by what tenure does he hold his office does he continue as president for the remainder of the four years term or would the elected president if his inability should cease in the interval be empowered to resume his office and if having such lawful authority he should exercise it would the be thereupon empowered to resume his powers and duties as such i can not doubt that these important questions will receive your early and thoughtful consideration deeply impressed with the gravity of the responsibilities which have so unexpectedly devolved upon me it will be my constant purpose to cooperate with you in such measures as will promote the glory of the country and the prosperity of its people
appalling calamity befallen american people since chosen representatives last met halls assembled might else recall unalloyed content rare prosperity throughout year nation blessed harvests plenteous varied industries thriven health people preserved maintained foreign governments undisturbed relations amity peace manifestations favor owe holds destiny hands tribute grateful devotion mysterious exercise taken us loved illustrious citizen lately head nation bow sorrow submission memory exalted character noble achievements patriotic life treasured forever sacred possession whole people announcement death drew foreign governments peoples tributes sympathy sorrow history record signal tokens kinship nations federation mankind feeling good government great britain never marked present recognition pleasing fact directed occasion late centennial celebration yorktown salute given british flag save correspondence shall refer hereafter relation proposed canal across isthmus panama little occurred worthy mention diplomatic relations two countries early year fortune bay claims satisfactorily settled british government paying full sum pounds already distributed terms settlement included compensation injuries suffered fishermen aspee bay retained gross award sum deemed adequate claims participation americans exhibitions melbourne sydney approvingly mentioned reports two exhibitions soon presented congress disclose readiness countrymen make successful competition distant fields enterprise negotiations international copyright convention hopeful progress surrender sitting bull forces upon canadian frontier allayed apprehension although bodies british indians still cross border quest sustenance upon subject correspondence opened promises adequate understanding troops orders avoid meanwhile collisions alien indians presence yorktown celebration representatives french republic descendants lafayette gallant compatriots allies revolution served strengthen spirit good always existed two nations furnished proceedings bimetallic conference held summer city paris accord reached valuable interchange views conference next year renewed electrical exhibition congress also held paris country creditably represented eminent specialists absence appropriation generously lent efficient aid instance state department exhibitors almost distinctively american field achievement several valuable awards recommend congress provide repayment personal expenses incurred public interest honorary commissioners delegates new questions respecting status naturalized citizens germany arisen year causes complaint especially alsace lorraine practically ceased liberal action imperial government accepting views subject application treaty 1868 lately acquired rhenish provinces received earnest attention definite lasting agreement point confidently expected participation descendants baron von steuben yorktown festivities subsequent reception american kinsmen strikingly evinced ties good unite german people intercourse spain friendly agreement concluded february last fixes term labors spanish american claims commission spanish government requested pay late awards commission believed accede request promptly courteously former occasions recent legislation onerous fines imposed upon american shipping spanish colonial ports slight irregularities manifests one ease hardship specially worthy attention bark masonic bound japan entered manila distress sought confiscated spanish revenue laws alleged shortage transshipped cargo though efforts relief thus far proved unavailing expected whole matter adjusted friendly spirit senate resolutions condolence assassination czar alexander ii appropriately communicated russian government turn expressed sympathy late national bereavement desirable cordial relations russia strengthened proper engagements assuring peaceable americans visit empire consideration due citizens friendly state especially needful respect american israelites whose classification native hebrews evoked energetic remonstrances government supplementary consular agreement italy sanctioned proclaimed puts rest conflicts jurisdiction case crimes shipboard several important international conferences held italy year geographical congress venice beneficence congress milan hygienic congress turin country represented delegates branches public service private citizens duly accredited honorary capacity hoped congress give prominence results participation may seem deserve abolition discriminating duties colonial productions dutch east indies imported hither holland already considered congress trust present session matter may favorably concluded insecurity life property many parts turkey given rise correspondence porte looking particularly better protection american missionaries empire condemned murderer eminent missionary justin parsons yet executed although government repeatedly demanded exemplary justice done swiss government solicited good offices diplomatic consular agents protection citizens countries represented request within proper limits granted agents switzerland instructed protest conduct authorities certain communes permitting emigration country criminals objectionable persons several persons cooperation commissioners emigration new york sent back steamers brought continuance course may prove effectual remedy diplomatic remonstrance treaties commerce navigation regulation consular privileges concluded roumania servia since admission family european states natural contiguous states like institutions like aims advancement development friendship united states mexico constantly maintained government lost occasion encouraging mexican government beneficial realization mutual advantages result intimate commercial intercourse opening rich interior mexico railway enterprise deem important means provided restrain lawlessness unfortunately common frontier suppress forays reservation indians either side rio grande neighboring states central america preserved internal peace outward relations toward us intimate friendship encouraging signs growing disposition subordinate local interests common reason geographical relations boundary dispute guatemala mexico afforded government opportunity exercise good offices preventing rupture states procuring peaceable solution question cherish strong hope view relations amity countries friendly counsels may prevail special envoy guatemala brought condolences government people death president garfield costa rican government lately framed engagement colombia settling arbitration boundary question countries providing post arbitrator offered successively king belgians king spain president argentine confederation king belgians declined act yet advised action king spain certain interests disputed territory protected treaty engagements one parties important arbitration without consent affect rights government accordingly thought proper make views known parties agreement well intimate belgian spanish governments questions growing proposed interoceanic waterway across isthmus panama grave national importance government unmindful solemn obligations imposed upon compact 1846 colombia independent sovereign mistress territory crossed canal sought render effective fresh engagements colombian republic looking practical execution negotiations end reached appeared mutually satisfactory solution met colombia disavowal powers envoy assumed proposal renewed negotiation modified basis meanwhile government learned colombia proposed european powers join guaranty neutrality proposed panama canal guaranty would direct contravention obligation sole guarantor integrity colombian territory neutrality canal lamented predecessor felt duty place european powers reasons make prior guaranty united states indispensable interjection foreign guaranty might regarded superfluous unfriendly act foreseeing probable reliance british government provisions treaty 1850 affording room share guaranties united states covenanted colombia four years hesitated supplement action predecessor proposing majesty government modification instrument abrogation clauses thereof comport obligations united states toward colombia vital needs two friendly parties compact government sees great concern continuance hostile relations chile bolivia peru early peace republics much desired may spared misery bloodshed continued antagonism threatens consequences judgment dangerous interests republican government continent calculated destroy best elements free peaceful civilization present excited condition popular feeling countries serious misapprehension position united states separate diplomatic intercourse independent ministers sometimes subject owing want prompt reciprocal communication temporary misunderstanding deemed judicious present time send special envoy accredited furnished general instructions trust enable bring powers friendly relations government venezuela maintains attitude warm friendship continues great regularity payment monthly quota diplomatic debt without suggesting direction congress act ask attention pending questions affecting distribution sums thus far received relations venezuela france growing debt time past unsatisfactory state government neighbor one largest creditors venezuela interposed influence french government view producing friendly honorable adjustment regret commercial interests united states brazil great advantages hoped year ago suffered withdrawal american lines communication brazilian ports efforts minister resident buenos ayres united states minister santiago treaty concluded argentine republic chile disposing patagonian boundary question matter congratulation government afforded opportunity successfully exerting good influence prevention disagreements republics american continent glad inform treaties lately negotiated china duly ratified sides exchange made peking legislation necessary carry provisions effect prompt friendly spirit chinese government request united states conceded modification existing treaties secure careful regard interests susceptibilities government enactment laws relating chinese immigration clauses treaties forbid participation citizens vessels united states opium trade doubtless receive approval attest sincere interest people government feel commendable efforts chinese government put stop demoralizing destructive traffic relation china japan changes desirable present system consular jurisdiction hope future time lay scheme improvement entire east intimacy country japan advanced eastern nations continues cordial advised emperor contemplates establishment full constitutional government already summoned parliamentary congress purpose effecting change remarkable step toward complete assimilation western system fail bring japan closer beneficial relationship chief pacific power question arisen relation exercise country judicial functions conferred upon ministers consuls indictment trial conviction consular court yokohama john ross merchant seaman board american vessel made necessary government institute careful examination nature methods jurisdiction appeared ross regularly shipped flag united states birth british subject predecessor felt duty maintain position service regularly shipped seaman board american merchant vessel ross subject laws service jurisdiction united states consular authorities renew recommendation heretofore urged executive upon attention congress deduction amount may found due american citizens balance indemnity funds heretofore obtained china japan hands state department returned governments countries king hawaii course homeward return journey around world lately visited country relations kingdom friendly government viewed concern efforts seek replenishment diminishing population islands outward sources degree may impair native sovereignty independence united states among first testify lively interest relations unimpaired amity maintained throughout year respective governments belgium denmark hayti paraguay uruguay portugal sweden norway may also said greece ecuador although relations states years severed withdrawal appropriations diplomatic representatives athens quito seems expedient restore missions even reduced scale decidedly recommend course respect ecuador likely within near future play important part among nations southern pacific last extra session senate called text geneva convention relief wounded war trust action foreshadows interest subject result adhesion united states humane commendable engagement invite attention propriety adopting new code international rules prevention collisions high seas conforming domestic legislation united states thereto confusion may arise application conflicting rules case vessels different nationalities meeting tidal waters international rules differ slightly adopted navy department governance war ships united states high seas foreign waters action state department disseminating rules acquainting shipmasters option conforming without jurisdictional waters united states generally known obeyed state department still continues publish country trade manufacturing reports received officers abroad success course warrants continuance appropriation may required meet rapidly increasing demand publications special reference atlanta cotton exposition october number reports devoted valuable collection papers trade world international sanitary conference 1879 congress made provision assembled city early january last sessions prolonged march although reached specific conclusions affecting future action participant powers interchange views proved valuable full protocols sessions already presented senate pertinent general subject call attention operations national board health established act congress approved march 3 1879 sphere duty enlarged act june 2 year act board required institute measures might deemed necessary preventing introduction contagious infectious diseases foreign countries united states one state another execution rules regulations prepared board approved predecessor done much arrest progress epidemic disease thus rendered substantial service nation international sanitary conference referred adopted form bill health used vessels seeking enter ports countries whose representatives participated deliberations form since prescribed national board health incorporated rules regulations approved pursuance law health people supreme importance measures looking protection spread contagious diseases increase sanitary knowledge purposes deserve attention congress report secretary treasury presents detail highly satisfactory exhibit state finances condition various branches public service administered department ordinary revenues sources fiscal year ending june 30 1881 ordinary expenditures period leaving surplus revenue applied follows requirements sinking fund year amounted sum included balance provided previous fiscal year sum applied fund left deficit increase revenues 1881 previous year estimated receipts present fiscal year reach expenditures leaving surplus applicable sinking fund redemption public debt approve recommendation secretary treasury provision made early retirement silver certificates act requiring issue repealed issued pursuance policy government maintain silver near gold standard accordingly made receivable customs taxes public dues millions outstanding form unnecessary addition paper currency sufficient amount may readily supplied national banks accordance act february 28 1878 treasury department monthly caused least two millions value silver bullion coined standard silver dollars one hundred two millions dollars already coined millions circulation reasons specifies concur secretary recommendation provision coinage fixed amount month repealed hereafter much coined shall necessary supply demand secretary advises issue gold certificates present resumed suggests national banks may properly forbidden law retire currency except upon reasonable notice intention legislation would seem justified recent action certain banks occasion referred secretary report fifteen millions fractional currency still outstanding eighty thousand redeemed past year suggestion amount may properly dropped future statements public debt seems worthy approval also suggestion secretary advisability relieving calendar united states courts southern district new york transfer another tribunal numerous suits pending collectors revenue customs past fiscal year increase year preceding one hundred million thousand five hundred dollars cents amount collected port new york leaving amount collected ports country sum collected sugar melado molasses wool manufactures iron steel manufactures thereof manufactures silk manufactures cotton wines spirits making total revenue sources expenses collection past year increase preceding year notwithstanding increase revenue customs preceding year gross value imports including free goods decreased marked decrease value unmanufactured wool scrap pig iron value imported sugar hand showed increase steel rails barley steel bars ingots contrasted imports last fiscal year exports follows compared previous year increase value exports merchandise decrease value imports annual average excess imports merchandise exports thereof ten years previous june 30 1873 last six years excess exports imports merchandise amounting annual average specie value exports domestic merchandise 1870 1881 increase 135 per cent value imports 1870 1881 increase 47 per cent year 1862 1879 inclusive exports specie exceeded imports largest excess exports imports reached year 1864 amounted year ended june 30 1880 imports coin bullion exceeded exports last fiscal year excess imports exports last annual report secretary treasury attention congress called fact 5 per cent bonds 6 per cent bonds would become redeemable year congress asked authorize refunding bonds lower rate interest bill refunding failed become law secretary treasury april last notified holders 6 per cent bonds outstanding bonds would paid par 1st day july following might continued pleasure government bear interest rate 3 per cent per annum notice 6 per cent bonds continued lower rate redeemed month may like notice given respecting redemption continuance 5 per cent bonds outstanding continued 3 per cent per annum redeemed 6 per cent bonds loan february 8 1861 oregon war debt amounting together matured year secretary treasury gave notice intention redeem presented paid surplus revenues also redeemed par 3 per cent continued bonds making total bonds redeemed ceased bear interest year reduction annual interest public debt transactions follows 3 per cent bonds payable pleasure government available investment surplus revenues without payment premiums unless bonds funded much lower rate interest bear agree secretary treasury legislation respecting desirable matter congratulation business country prosperous past year yield taxation large surplus income government revenue laws remain unchanged surplus must year year increase account reduction public debt burden interest rapid increase population 1860 prior institution system population slightly exceeded census 1880 found exceed estimated even annual receipts expenditures continue present entire debt could paid ten years view however heavy load taxation people already borne may well consider whether part wisdom reduce revenues even delay little payment debt seems time arrived people may justly demand relief present onerous burden due economy various branches public service may readily afforded therefore concur secretary recommending abolition taxes except upon tobacco various forms upon distilled spirits fermented liquors except also special tax upon manufacturers dealers articles retention latter tax desirable affording officers government proper supervision articles prevention fraud agree secretary treasury law imposing stamp tax upon matches proprietary articles playing cards cheeks drafts may propriety repealed law also banks bankers assessed upon capital deposits seems general sentiment favor course present condition revenues tax upon deposits especially unjust never imposed country demanded necessities war never exacted believe country even greatest exigencies banks required secure circulation pledging treasurer united states bonds general government interest upon bonds time tax imposed 6 per cent instances 3 per cent besides entire circulation originally limited law increase allowable existing banks practically monopoly business force suggestion franchise favored grantees government might properly exact tax circulation years system free amount circulation regulated public demand retention tax suggested means reimbursing government expense printing furnishing circulating notes tax repealed would certainly seem proper require national banks pay amount expense comptroller currency perhaps doubtful whether immediate reduction rate taxation upon liquors tobacco advisable especially view drain upon treasury must attend payment arrears pensions comparison however amount taxes collected varying rates taxation different times prevailed suggests intimation reduction may soon made without material diminution revenue tariff laws also need revision due regard may paid conflicting interests citizens important changes made caution careful revision made session commission lately approved senate recommended secretary treasury would doubtless lighten labors congress whenever subject shall brought consideration accompanying report secretary war make known operations department past year suggests measures promoting efficiency army without adding number officers recommends legislation necessary increase number enlisted men maximum allowed law deems necessary maintain quietude frontier preserve peace suppress disorder marauding new settlements protect settlers property indians indians encroachments intruders enable peaceable immigrants establish homes remote parts country army necessarily scattered vast extent territory whenever outbreak occurs reenforcements must hurried many quarters great distances always heavy cost transportation men horses wagons supplies concur recommendations secretary increasing army strength enlisted men appears secretary report absence disturbances frontier troops actively employed collecting indians hitherto hostile locating proper reservations sitting bull adherents prisoners fort randall utes moved new reservation utah recent outbreak apaches necessary reenforce garrisons arizona troops withdrawn new mexico apaches held prisoners trial escaped majority tribe reservation need legislation prevent intrusion upon lands set apart indians large military force great expense required patrol boundary line kansas indian territory punishment present inflicted forcible removal intruder imposition pecuniary fine cases impossible collect penalty imprisonment cases separate organization signal service urged secretary war full statement advantages permanent organization presented report chief signal officer detailed account useful work performed signal corps weather bureau also given report ask attention statements secretary war regarding requisitions frequently made indian bureau upon subsistence department army casual support bands tribes indians whose appropriations exhausted war department left reason inadequate provision indian bureau contribute maintenance indians report chief engineers furnishes detailed account operations improvement rivers harbors commend attention suggestions contained report regard condition fortifications especially coast defenses recommend increase strength engineer battalion efficiency torpedo system would improved also call attention remarks upon improvement south pass mississippi river proposed free bridge potomac river georgetown importance completing early day north wing war department building recommendations secretary war appear report actual expenditures department fiscal year ending june 30 1881 appropriations year 1882 estimates 1883 report secretary navy exhibits condition branch service presents valuable suggestions improvement call especial attention also appended report advisory board convened devise suitable measures increasing efficiency navy particularly report character number vessels necessary place upon footing commensurate necessities government strongly urge upon conviction every consideration national safety economy honor imperatively demands thorough rehabilitation navy full appreciation fact compliance suggestions head department advisory board must involve large expenditure public moneys earnestly recommend appropriations accomplish end seems desirable nothing inconsistent true public economy withholding means necessary accomplish objects intrusted constitution national legislature one objects one paramount importance declared fundamental law provision common defense surely nothing essential defense united states people efficiency navy many years maintained foreign governments relations honorable peace relations may permanent desired every patriotic citizen republic heed teachings history shall forget life every nation emergencies may arise resort arms alone save dishonor danger abroad threatens people distrust friendly professions governments avoiding well repelling dangers may threaten us future must prepared enforce policy think wise adopt must ready defend harbors aggression protect distribution ships war highways commerce varied interests foreign trade persons property citizens abroad maintain everywhere honor flag distinguished position may rightfully claim among nations world report gratifying exhibit growth efficiency postal service receipts postage ordinary sources past fiscal year receipts business making total expenditure fiscal year deficit supplied general treasury per cent amount expended receipts excess previous year excess estimate made two years ago present period business prosperity fairly begun whole number letters mailed country last fiscal year exceeded registry system reported excellent condition remodeled past four years good results amount registration fees collected last fiscal year increase fiscal year ending june 30 1877 entire number letters packages registered year lost destroyed transit operations system multiplying yearly impulse immigration rapid development newer states territories consequent demand additional means intercommunication exchange past year 338 additional offices established making total operation date report year domestic money orders aggregated value modification system suggested reducing fees money orders exceeding 5 10 cents 5 cents making maximum limit 100 place 50 legislation disposition unclaimed money orders possession department recommended view fact total value exceeds attention congress invited subject establishing system savings depositories connection department statistics mail transportation show past year railroad routes increased length miles cost steamboat routes decreased length miles cost star routes decreased length miles cost nearly expensive routes superseded railroad service cost star service must therefore rapidly decrease western states territories however calls attention constantly increasing cost railway mail service serious difficulty way making department postal intercourse foreign countries kept pace growth domestic service within past year several countries colonies declared adhesion postal union includes organized postal service except bolivia costa rica new zealand british colonies australia already stated great reductions recently made expense service investigations department justice department resulted presentation indictments persons formerly connected service accusing offenses united states enjoined upon officials charged conduct cases part government upon eminent counsel accession presidency called assistance duty prosecuting utmost vigor law persons may found chargeable frauds upon postal service acting calls attention necessity modifying present system courts united states necessity due large increase business especially supreme court litigation federal tribunals became greatly expanded close late war long expansion might attributable abnormal condition community found immediately return peace prudence required change made constitution judicial tribunals become apparent immense increase litigation directly resulted wonderful growth development country ground belief business united states courts ever less volume present indeed likely much greater generally recognized bench bar view fact congress already given much consideration subject make suggestion detail express hope deliberations may result legislation give early relief overburdened courts acting also calls attention disturbance public tranquillity past year territory arizona band armed desperadoes known cowboys probably numbering fifty one hundred men engaged months committing acts lawlessness brutality local authorities unable repress depredations cowboys also extended mexico marauders reach arizona frontier every disposition meet exigencies case embarrassed lack authority deal effectually punishment crimes committed within arizona ordinarily course left territorial authorities worthy consideration whether acts necessarily tend embroil united states neighboring governments declared crimes united states incursions alluded may perhaps within scope law revised statutes sec 5286 forbidding military expeditions enterprises friendly states view speedy assembling body preferred await legislation wisdom occasion may seem demand may perhaps thought proper provide setting foot within territory brigandage armed marauding expeditions friendly nations citizens shall punishable offense united states add event request territorial government protection united states domestic violence government would powerless render assistance act 1795 chapter 36 passed time territorial governments received little attention congress enforced duty united states state governments act 1807 chapter 39 applied also territories law seems remained force revision statutes provision territories dropped advised whether alteration intentional accidental seems territories offered protection accorded staten constitution suggest legislation end seems whatever views may prevail policy recent legislation army ceased part posse comitatus exception might well made permitting military assist civil territorial authorities enforcing laws united states use army would seem within alleged evil legislation aimed sparseness population circumstances often quite impracticable summon civil posse places officers justice require assistance military force within easy reach report secretary interior accompanying documents presents elaborate account business department summary would extended place ask careful attention report prominent among matters challenge attention congress present session management indian affairs question trouble embarrassment infancy government recently effort made solution serious determined consistent promising success easier resort convenient makeshifts tiding temporary difficulties grapple great permanent problem accordingly easier course almost invariably pursued natural time national territory seemed almost illimitable contained many millions acres far outside bounds civilized settlements policy initiated aught else fruitful source indian complications refer course policy dealing various indian tribes separate nationalities relegating treaty stipulations occupancy immense reservations west encouraging live savage life undisturbed earnest efforts bring influences civilization unsatisfactory results sprung policy becoming apparent white settlements crowded borders reservations indians sometimes contentedly sometimes transferred hunting grounds dislodged whenever homes desired adventurous settlers removals frontier collisions often preceded led frequent disastrous conflicts races profitless discuss chiefly responsible disturbances whose recital occupies large space upon pages history deal appalling fact though thousands lives sacrificed hundreds millions dollars expended attempt solve indian problem within past years seemed scarcely nearer solution half century ago government late cautiously steadily feeling way adoption policy already produced gratifying results judgment likely congress executive accord support relieve us ere long difficulties hitherto beset us success efforts making introduce among indians customs pursuits civilized life gradually absorb mass citizens sharing rights holden responsibilities imperative need legislative action suggestions regard chiefly already called attention congress received extent consideration first recommend passage act making laws various states territories applicable indian reservations within borders extending laws state arkansas portion indian territory occupied five civilized tribes indian receive protection law allowed maintain court rights person property repeatedly begged privilege exercise would valuable progress toward civilization second even greater importance measure frequently recommended predecessors office furtherance several bills time time introduced houses congress enactment general law permitting allotment severalty indians least desire reasonable quantity land secured patent protection made inalienable twenty years demanded present welfare permanent advancement return considerate action part government reason believe indians large numbers would persuaded sever tribal relations engage agricultural pursuits many realize fact hunting days best interests conform manner life new order things greater inducement assurance permanent title soil led engage occupation tilling reports increasing interest husbandry justify hope belief enactment statute recommend would attended gratifying results resort allotment system would direct powerful influence dissolving tribal bond prominent feature savage life tends strongly perpetuate third advise liberal appropriation support indian schools confident belief course consistent wisest economy even among uncultivated indian tribes reported general urgent desire part chiefs older members education children unfortunate view fact past year means command interior department purpose indian instruction proved utterly inadequate success schools operation hampton carlisle forest grove encourage generous provision support institutions prompt establishment others similar character doubtless much potent good day schools upon reservation pupils altogether separated surroundings savage life brought constant contact civilization many phases subject great interest included within becoming limits communication discussed ably reports secretary interior commissioner indian affairs many years executive annual message congress urged necessity stringent legislation suppression polygamy territories especially territory utah existing statute punishment odious crime revolting moral religious sense christendom persistently contemptuously violated ever since enactment indeed spite commendable efforts part authorities represent united states territory law rare instances enforced reference presently made practically dead letter fact adherents mormon church rests upon polygamy corner stone recently peopling large numbers idaho arizona western territories well calculated excite liveliest interest apprehension imposes upon congress executive duty arraying barbarous system power constitution law wield destruction reference already made obstacles united states officers encountered efforts punish violations law prominent among obstacles difficulty procuring legal evidence sufficient warrant conviction even case notorious offenders attention called recent opinion supreme court united states explaining judgment reversal case miles convicted bigamy utah court refers fact secrecy attending celebration marriages territory makes proof polygamy difficult propriety suggested modifying law evidence makes wife incompetent testify husband suggestion approved recommend also passage act providing territories united states fact woman married person charged bigamy shall disqualify witness upon trial offense recommend legislation person solemnizing marriage territories shall required stringent penalties neglect refusal file certificate marriage supreme court territory doubtless congress may devise practicable measures obviating difficulties hitherto attended efforts suppress iniquity assure determined purpose cooperate lawful discreet measures may proposed end although system government contemplate nation provide support system education people measures calculated promote general intelligence virtue upon perpetuity institutions greatly depends ever regarded indifference congress executive large portion public domain time time devoted promotion education special reason setting apart proceeds sales public lands course government aid work education many exercise right suffrage unable read ballot cast upon many emerged condition slavery suddenly devolved responsibilities citizenship portion country impoverished war pleased learn report commissioner education lately commendable increase interest effort instruction done local legislation private generosity supplemented aid constitutionally afforded national government would suggest fund dedicated purpose may wisely distributed different states according ratio illiteracy means localities need assistance reap special benefits report commissioner agriculture exhibits results experiments department engaged past year makes important suggestions reference agricultural development country steady increase population consequent addition number engaging pursuit husbandry giving department growing dignity importance commissioner suggestions touching capacity greater usefulness deserve attention commends interests created promote appears report commissioner pensions since 1860 original pension claims filed allowed inscribed pension roll rejected abandoned per cent whole number claims settled pending settlement original pension claims filed prior july 1 1880 allowed involve payment arrears date discharge case invalid date death termination prior right cases data obtainable estimated 15 per cent number claims pending rejected abandoned would show probable rejection cases probable admission claims involve payment arrears pension present force employed number adjudications remaining new business intervening number claims could acted upon period six years taking january 1 1884 near period estimate case average amount arrears found every case allowed would require first payment upon sum multiplying amount whole number probable admissions gives sum required first payment represents sum must paid upon claims filed july 1 1880 pending entitled benefits arrears act amount may deducted ten fifteen millions cases claimant dying person law would entitled succeed pension leaving probable amount paid estimates account taken cases filed since june 30 1880 pending must receive attention current business involve payment arrears beyond date filing claim number estimated 86 per cent allowed stated present force pension bureau 675 clerks estimated take six years dispose claims pending stated commissioner pensions addition 250 clerks increasing adjudicating force rather mechanical double amount work could accomplished cases could acted upon within three years aside considerations justice may urged speedy settlement claims files pension office less important score economy inasmuch fully clerical force office wholly occupied giving attention correspondence thousands claimants whose cases files past eighteen years fact sum enormous must expended government meet demands arrears pensions admonition congress executive give cautious consideration similar project future great temptation presentation fictitious claims afforded fact average sum obtained upon application leads suggest propriety making special appropriation prevention fraud advise appropriations internal improvements wisdom congress may deem public importance necessity improving navigation mississippi river justifies special allusion subject suggest adoption measure removal obstructions impede navigation great channel commerce letter accepting nomination stated judgment man incumbent office duties unfit perform lacking ability fidelity integrity proper administration office demands sentiment would doubtless meet general acquiescence opinion widely divided upon wisdom practicability various reformatory schemes suggested certain proposed regulations governing appointments public office efficiency regulations distrusted mainly seemed exalt mere educational abstract tests general business capacity even special fitness particular work hand seems rules applied management public service may properly conform main regulate conduct successful private business original appointments based upon ascertained fitness tenure office stable positions responsibility far practicable filled promotion worthy efficient officers investigation complaints punishment official misconduct prompt thorough views expressed foregoing letter govern administration executive office doubtless shared intelligent patriotic citizens however divergent opinions best methods putting practical operation example assertion original appointments based upon ascertained fitness open dispute question practice fitness effectually ascertained one years excited interest discussion measure slight variations details lately urged upon attention congress executive principal feature scheme competitive examination save certain exceptions need specified plan would allow admission service lowest grade would accordingly demand vacancies higher positions filled promotion alone particulars conformity existing system great britain indeed success attended system country birth strongest argument urged adoption fact however overlooked certain features english system generally received favor country even among foremost advocates reform among 1 tenure office winch substantially life tenure 2 limitation maximum age applicant enter service whereby men middle life older exceptions rigidly excluded 3 retiring allowance upon going office three elements important factors problem others eliminate english system would effect radical change theory practice avowed purpose system induce educated young men country devote lives public employment assurance entered upon need never leave voluntary retirement shall recipients annual pension system entirety proved successful great britain seems generally conceded even opposed adoption statute incorporate essential features feel bound give approval whether would best interests public fix upon expedient immediate extensive application embraces certain features english system excludes ignores others equal importance may seriously doubted even impressed grave importance correcting evils inhere present methods appointment example english rule shuts persons age 25 years large number public employments made essential part system questionable whether attainment highest number marks competitive examination criterion applications appointment put test similar conditions may also questioned whether admission service strictly limited lowest ranks many characteristics go make model civil servant prominent among probity industry good sense good habits good temper patience order courtesy tact manly deference superior officers manly consideration inferiors absence traits supplied wide knowledge books promptitude answering questions quality likely brought light competitive examination make success contest therefore indispensable condition public employment would likely result practical exclusion older applicants even though might possess qualifications far superior younger brilliant competitors suggestions must regarded evincing spirit opposition competitive plan extent successfully employed already may hereafter vindicate claim earnest supporters ought seriously considered whether application educational standard persons mature years young men fresh school college would likely exalt mere intellectual proficiency qualities equal greater importance another feature proposed system selection promotion officers government lowest grade except would fairly regarded exponents policy executive principles dominant party afford encouragement faithful public servants exciting minds hope promotion found merit much desired would wise adopt rule rigid permit mode supplying intermediate walks service many persons fill subordinate positions great credit lack qualities requisite higher posts duty besides modes thought action one whose service governmental bureau long continued often cramped routine procedure almost disqualify instituting changes required public interests infusion new blood time time middle ranks service might beneficial results subject discussion one grave importance evils complained eradicated work must gradual present english system growth years created single stroke executive legislative action beginnings found order council promulgated 1855 patient cautious scrutiny workings fifteen years later took present shape five years issuance order council time resort competitive examinations experiment much extensively yet case country select committee house commons made report house declaring approval competitive plan deprecated nevertheless precipitancy general adoption likely endanger ultimate success tentative period results two methods pass examination competitive examination closely watched compared may confine upon important question within stringent bounds statutory enactment may profitably await result inquiry experiment submission portion nominations central board examiners selected solely testing qualifications applicants may perhaps without resort competitive test put end mischiefs attend present system appointment may feasible vest board wide discretion ascertain characteristics attainments candidates particulars already referred less important mere intellectual attainment congress deem advisable present session establish competitive tests admission service doubts suggested shall deter giving measure earnest support urgently recommend failure pass act upon subject appropriation per year may made enforcement section 1753 revised statutes aid thus afforded shall strive execute provisions law according letter spirit unwilling justice present civil servants government dismiss subject without declaring dissent severe almost indiscriminate censure recently assailed class indolent inefficient corrupt statement often made widely credited extent variety delicacy importance duties considered great majority employees government judgment deserving high commendation continuing decline merchant marine united states greatly deplored view fact furnish large proportion freights commercial world shipments steadily rapidly increasing surprise navigation interest diminishing less exports imports half large either bulk value must peculiar hindrance development interest enterprise energy american mechanics capitalists would kept country least abreast rivals friendly contest ocean supremacy substitution iron wood steam sail wrought great revolutions carrying trade world changes could adverse america given navigation interests portion aid protection wisely bestowed upon manufactures commend whole subject wisdom congress suggestion question greater magnitude farther reaching importance engage attention 1875 supreme court united states declared unconstitutional statutes certain states imposed upon shipowners consignees tax passenger arriving foreign country lieu thereof required bond indemnify state local authorities expense future relief support passenger since decision expense attending care supervision immigrants fallen states whose ports landed large majority immigrants immediately upon arrival proceed inland states territories seek permanent homes manifestly unjust impose upon state whose shores first reach burden bears reason national importance subject recommend legislation regarding supervision transitory care immigrants ports debarkation regret state people alaska reason complain yet unprovided form government life property protected extent population justify application costly machinery territorial administration immediate necessity constituting form government promote education people secure administration justice senate last session passed bill providing construction building library congress failed become law provision suitable protection great collection books copyright department connected become subject national importance receive prompt attention report commissioners district columbia herewith transmitted inform fully condition affairs district urge vital importance legislation reclamation improvement marshes establishment harbor lines along potomac river front represented present condition marshes seriously affect health residents adjacent parts city greatly mar general aspect park stands washington monument improvement would add park park south executive mansion large area valuable land would transform believed dangerous nuisance attractive landscape extending river front recommend removal steam railway lines surface streets city location necessary depots places may convenient public accommodation call attention deficiency water supply seriously affects material prosperity city health comfort inhabitants commend subjects favorable consideration importance timely legislation respect ascertainment declaration vote presidential electors sharply called attention people four years ago hoped measure may devised another national election render unnecessary resort expedient temporary character determination questions upon contested returns questions concern existence government liberties people suggested prolonged illness late president consequent incapacity perform functions office provided second article constitution fifth clause first section case removal president office death resignation inability discharge powers duties said office shall devolve intendment constitution specification inability discharge powers duties said office one contingencies calls exercise presidential functions inability limited nature intellectual incapacity broader import must extent duration must existence established president whose inability subject inquiry voice determining whether exists decision momentous delicate question confided contemplated constitution congress provide law precisely constitute inability tribunal authority ascertained inability proves temporary nature continuance lawfully exercises functions executive tenure hold office continue president remainder four years term would elected president inability cease interval empowered resume office lawful authority exercise would thereupon empowered resume powers duties doubt important questions receive early thoughtful consideration deeply impressed gravity responsibilities unexpectedly devolved upon constant purpose cooperate measures promote glory country prosperity people
appal calamity befall american people since choose representative last meet hall assemble might else recall unalloyed content rare prosperity throughout year nation bless harvest plenteous varied industry thrive health people preserve maintained foreign government undisturbed relation amity peace manifestation favor owe hold destiny hand tribute grateful devotion mysterious exercise take u love illustrious citizen lately head nation bow sorrow submission memory exalt character noble achievement patriotic life treasure forever sacred possession whole people announcement death draw foreign government people tribute sympathy sorrow history record signal token kinship nation federation mankind feel good government great britain never mark present recognition please fact direct occasion late centennial celebration yorktown salute give british flag save correspondence shall refer hereafter relation propose canal across isthmus panama little occur worthy mention diplomatic relation two country early year fortune bay claim satisfactorily settle british government pay full sum pound already distribute term settlement include compensation injury suffer fisherman aspee bay retain gross award sum deem adequate claim participation american exhibition melbourne sydney approvingly mention report two exhibition soon present congress disclose readiness countryman make successful competition distant field enterprise negotiation international copyright convention hopeful progress surrender sit bull force upon canadian frontier allay apprehension although body british indian still cross border quest sustenance upon subject correspondence open promise adequate understanding troop order avoid meanwhile collision alien indian presence yorktown celebration representative french republic descendant lafayette gallant compatriot ally revolution serve strengthen spirit good always exist two nation furnish proceeding bimetallic conference hold summer city paris accord reach valuable interchange view conference next year renew electrical exhibition congress also hold paris country creditably represent eminent specialist absence appropriation generously lent efficient aid instance state department exhibitor almost distinctively american field achievement several valuable award recommend congress provide repayment personal expense incur public interest honorary commissioner delegate new question respect status naturalize citizen germany arise year cause complaint especially alsace lorraine practically ceased liberal action imperial government accept view subject application treaty 1868 lately acquire rhenish province receive earnest attention definite lasting agreement point confidently expect participation descendant baron von steuben yorktown festivity subsequent reception american kinsman strikingly evinced tie good unite german people intercourse spain friendly agreement conclude february last fixes term labor spanish american claim commission spanish government request pay late award commission believe accede request promptly courteously former occasion recent legislation onerous fine impose upon american shipping spanish colonial port slight irregularity manifest one ease hardship specially worthy attention bark masonic bound japan enter manila distress seek confiscate spanish revenue law allege shortage transship cargo though effort relief thus far proved unavailing expect whole matter adjust friendly spirit senate resolution condolence assassination czar alexander ii appropriately communicate russian government turn express sympathy late national bereavement desirable cordial relation russia strengthen proper engagement assure peaceable american visit empire consideration due citizen friendly state especially needful respect american israelite whose classification native hebrew evoke energetic remonstrance government supplementary consular agreement italy sanction proclaim put rest conflict jurisdiction case crimes shipboard several important international conference hold italy year geographical congress venice beneficence congress milan hygienic congress turin country represent delegate branch public service private citizen duly accredit honorary capacity hop congress give prominence result participation may seem deserve abolition discriminate duty colonial production dutch east indie import hither holland already consider congress trust present session matter may favorably conclude insecurity life property many part turkey give rise correspondence porte look particularly good protection american missionary empire condemn murderer eminent missionary justin parson yet execute although government repeatedly demand exemplary justice do swiss government solicit good office diplomatic consular agent protection citizen country represent request within proper limit grant agent switzerland instruct protest conduct authority certain commune permit emigration country criminal objectionable person several person cooperation commissioner emigration new york send back steamer bring continuance course may prove effectual remedy diplomatic remonstrance treaty commerce navigation regulation consular privilege conclude roumania servia since admission family european state natural contiguous state like institution like aim advancement development friendship united state mexico constantly maintain government lose occasion encourage mexican government beneficial realization mutual advantage result intimate commercial intercourse open rich interior mexico railway enterprise deem important mean provide restrain lawlessness unfortunately common frontier suppress foray reservation indians either side rio grande neighbor state central america preserve internal peace outward relation toward u intimate friendship encouraging sign grow disposition subordinate local interest common reason geographical relation boundary dispute guatemala mexico afford government opportunity exercise good office prevent rupture state procure peaceable solution question cherish strong hope view relation amity country friendly counsel may prevail special envoy guatemala bring condolence government people death president garfield costa rican government lately frame engagement colombia settle arbitration boundary question country provide post arbitrator offer successively king belgian king spain president argentine confederation king belgian decline act yet advise action king spain certain interest dispute territory protect treaty engagements one party important arbitration without consent affect right government accordingly think proper make view know party agreement well intimate belgian spanish government question grow propose interoceanic waterway across isthmus panama grave national importance government unmindful solemn obligation impose upon compact 1846 colombia independent sovereign mistress territory cross canal sought render effective fresh engagement colombian republic look practical execution negotiation end reach appear mutually satisfactory solution meet colombia disavowal power envoy assume proposal renew negotiation modify basis meanwhile government learn colombia propose european power join guaranty neutrality propose panama canal guaranty would direct contravention obligation sole guarantor integrity colombian territory neutrality canal lament predecessor felt duty place european power reason make prior guaranty united state indispensable interjection foreign guaranty might regard superfluous unfriendly act foresee probable reliance british government provision treaty 1850 afford room share guaranty unite state covenant colombia four year hesitate supplement action predecessor propose majesty government modification instrument abrogation clause thereof comport obligation united state toward colombia vital need two friendly party compact government see great concern continuance hostile relation chile bolivia peru early peace republic much desire may spar misery bloodshed continue antagonism threatens consequence judgment dangerous interest republican government continent calculate destroy best element free peaceful civilization present excite condition popular feeling country serious misapprehension position united state separate diplomatic intercourse independent minister sometimes subject owe want prompt reciprocal communication temporary misunderstanding deem judicious present time send special envoy accredit furnished general instruction trust enable bring power friendly relation government venezuela maintain attitude warm friendship continue great regularity payment monthly quota diplomatic debt without suggest direction congress act ask attention pending question affect distribution sum thus far received relation venezuela france grow debt time past unsatisfactory state government neighbor one large creditor venezuela interpose influence french government view produce friendly honorable adjustment regret commercial interest united state brazil great advantage hop year ago suffer withdrawal american line communication brazilian port effort minister resident buenos ayres united state minister santiago treaty conclude argentine republic chile dispose patagonian boundary question matter congratulation government afford opportunity successfully exert good influence prevention disagreement republic american continent glad inform treaty lately negotiate china duly ratify side exchange make peking legislation necessary carry provision effect prompt friendly spirit chinese government request unite state concede modification exist treaty secure careful regard interest susceptibility government enactment law relate chinese immigration clause treaty forbid participation citizen vessel united state opium trade doubtless receive approval attest sincere interest people government feel commendable effort chinese government put stop demoralizing destructive traffic relation china japan change desirable present system consular jurisdiction hope future time lay scheme improvement entire east intimacy country japan advance eastern nation continue cordial advise emperor contemplates establishment full constitutional government already summon parliamentary congress purpose effect change remarkable step toward complete assimilation western system fail bring japan closer beneficial relationship chief pacific power question arisen relation exercise country judicial function confer upon minister consuls indictment trial conviction consular court yokohama john ross merchant seaman board american vessel make necessary government institute careful examination nature method jurisdiction appear ross regularly shipped flag united state birth british subject predecessor felt duty maintain position service regularly ship seaman board american merchant vessel ross subject law service jurisdiction united state consular authority renew recommendation heretofore urge executive upon attention congress deduction amount may find due american citizen balance indemnity fund heretofore obtain china japan hand state department return government country king hawaii course homeward return journey around world lately visited country relation kingdom friendly government view concern effort seek replenishment diminish population island outward source degree may impair native sovereignty independence united state among first testify lively interest relation unimpaired amity maintain throughout year respective government belgium denmark hayti paraguay uruguay portugal sweden norway may also say greece ecuador although relation state year sever withdrawal appropriation diplomatic representative athens quito seem expedient restore mission even reduce scale decidedly recommend course respect ecuador likely within near future play important part among nation southern pacific last extra session senate call text geneva convention relief wound war trust action foreshadow interest subject result adhesion united state humane commendable engagement invite attention propriety adopt new code international rule prevention collision high sea conform domestic legislation unite state thereto confusion may arise application conflict rule case vessel different nationality meet tidal water international rule differ slightly adopt navy department governance war ship united state high sea foreign water action state department disseminate rule acquaint shipmasters option conform without jurisdictional water united state generally know obeyed state department still continue publish country trade manufacturing report receive officer abroad success course warrant continuance appropriation may require meet rapidly increase demand publication special reference atlanta cotton exposition october number report devote valuable collection paper trade world international sanitary conference 1879 congress make provision assemble city early january last session prolong march although reach specific conclusion affect future action participant power interchange view prove valuable full protocol session already present senate pertinent general subject call attention operation national board health establish act congress approve march 3 1879 sphere duty enlarge act june 2 year act board require institute measure might deem necessary prevent introduction contagious infectious disease foreign country unite state one state another execution rule regulation prepare board approve predecessor do much arrest progress epidemic disease thus render substantial service nation international sanitary conference refer adopted form bill health use vessel seek enter port country whose representative participate deliberation form since prescribe national board health incorporate rule regulation approve pursuance law health people supreme importance measure look protection spread contagious disease increase sanitary knowledge purpose deserve attention congress report secretary treasury present detail highly satisfactory exhibit state finance condition various branch public service administer department ordinary revenue source fiscal year end june 30 1881 ordinary expenditure period leave surplus revenue apply follow requirement sink fund year amount sum include balance provide previous fiscal year sum apply fund leave deficit increase revenue 1881 previous year estimate receipt present fiscal year reach expenditures leave surplus applicable sinking fund redemption public debt approve recommendation secretary treasury provision make early retirement silver certificate act require issue repeal issue pursuance policy government maintain silver near gold standard accordingly make receivable custom tax public due million outstanding form unnecessary addition paper currency sufficient amount may readily supply national bank accordance act february 28 1878 treasury department monthly cause least two million value silver bullion coin standard silver dollar one hundred two million dollar already coin million circulation reason specifies concur secretary recommendation provision coinage fixed amount month repeal hereafter much coin shall necessary supply demand secretary advises issue gold certificate present resume suggest national bank may properly forbid law retire currency except upon reasonable notice intention legislation would seem justified recent action certain bank occasion refer secretary report fifteen million fractional currency still outstanding eighty thousand redeem past year suggestion amount may properly drop future statement public debt seem worthy approval also suggestion secretary advisability relieve calendar united state court southern district new york transfer another tribunal numerous suit pending collector revenue custom past fiscal year increase year precede one hundred million thousand five hundred dollar cent amount collect port new york leave amount collect port country sum collect sugar melado molasses wool manufacture iron steel manufacture thereof manufacture silk manufacture cotton wine spirit make total revenue source expense collection past year increase precede year notwithstanding increase revenue custom precede year gross value import include free good decrease marked decrease value unmanufactured wool scrap pig iron value import sugar hand show increase steel rail barley steel bar ingots contrast import last fiscal year export follow compare previous year increase value export merchandise decrease value import annual average excess import merchandise export thereof ten year previous june 30 1873 last six year excess export import merchandise amount annual average specie value export domestic merchandise 1870 1881 increase 135 per cent value import 1870 1881 increase 47 per cent year 1862 1879 inclusive export specie exceed import large excess export import reach year 1864 amount year end june 30 1880 import coin bullion exceed export last fiscal year excess import export last annual report secretary treasury attention congress call fact 5 per cent bond 6 per cent bond would become redeemable year congress ask authorize refund bond lower rate interest bill refund fail become law secretary treasury april last notified holder 6 per cent bond outstanding bond would pay par 1st day july follow might continue pleasure government bear interest rate 3 per cent per annum notice 6 per cent bond continue low rate redeem month may like notice give respect redemption continuance 5 per cent bond outstanding continue 3 per cent per annum redeem 6 per cent bond loan february 8 1861 oregon war debt amount together mature year secretary treasury give notice intention redeem present pay surplus revenue also redeem par 3 per cent continue bond make total bond redeem ceased bear interest year reduction annual interest public debt transaction follow 3 per cent bond payable pleasure government available investment surplus revenue without payment premium unless bond fund much low rate interest bear agree secretary treasury legislation respect desirable matter congratulation business country prosperous past year yield taxation large surplus income government revenue law remain unchanged surplus must year year increase account reduction public debt burden interest rapid increase population 1860 prior institution system population slightly exceed census 1880 find exceed estimate even annual receipt expenditure continue present entire debt could pay ten year view however heavy load taxation people already bear may well consider whether part wisdom reduce revenue even delay little payment debt seem time arrived people may justly demand relief present onerous burden due economy various branch public service may readily afford therefore concur secretary recommend abolition tax except upon tobacco various form upon distilled spirit ferment liquor except also special tax upon manufacturer dealer article retention latter tax desirable afford officer government proper supervision article prevention fraud agree secretary treasury law impose stamp tax upon match proprietary article play card cheek draft may propriety repealed law also bank banker assess upon capital deposit seem general sentiment favor course present condition revenue tax upon deposit especially unjust never impose country demand necessity war never exact believe country even great exigency bank require secure circulation pledge treasurer united state bond general government interest upon bond time tax impose 6 per cent instance 3 per cent besides entire circulation originally limit law increase allowable exist bank practically monopoly business force suggestion franchise favor grantee government might properly exact tax circulation year system free amount circulation regulate public demand retention tax suggest mean reimburse government expense print furnish circulate note tax repeal would certainly seem proper require national bank pay amount expense comptroller currency perhaps doubtful whether immediate reduction rate taxation upon liquor tobacco advisable especially view drain upon treasury must attend payment arrears pension comparison however amount tax collect vary rate taxation different time prevailed suggests intimation reduction may soon make without material diminution revenue tariff law also need revision due regard may pay conflicting interest citizens important change make caution careful revision make session commission lately approve senate recommend secretary treasury would doubtless lighten labor congress whenever subject shall bring consideration accompany report secretary war make know operation department past year suggest measure promote efficiency army without add number officer recommend legislation necessary increase number enlist men maximum allow law deem necessary maintain quietude frontier preserve peace suppress disorder maraud new settlement protect settler property indian indians encroachment intruder enable peaceable immigrant establish home remote part country army necessarily scatter vast extent territory whenever outbreak occur reenforcement must hurry many quarter great distance always heavy cost transportation men horse wagon supply concur recommendation secretary increase army strength enlist men appear secretary report absence disturbance frontier troop actively employ collect indian hitherto hostile locate proper reservation sit bull adherent prisoner fort randall ute move new reservation utah recent outbreak apache necessary reenforce garrison arizona troop withdraw new mexico apache hold prisoner trial escape majority tribe reservation need legislation prevent intrusion upon land set apart indians large military force great expense require patrol boundary line kansa indian territory punishment present inflict forcible removal intruder imposition pecuniary fine case impossible collect penalty imprisonment case separate organization signal service urge secretary war full statement advantage permanent organization present report chief signal officer detail account useful work perform signal corp weather bureau also give report ask attention statement secretary war regard requisition frequently make indian bureau upon subsistence department army casual support band tribes indian whose appropriation exhaust war department leave reason inadequate provision indian bureau contribute maintenance indian report chief engineer furnishes detail account operation improvement river harbor commend attention suggestion contain report regard condition fortification especially coast defense recommend increase strength engineer battalion efficiency torpedo system would improve also call attention remark upon improvement south pas mississippi river propose free bridge potomac river georgetown importance complete early day north wing war department building recommendation secretary war appear report actual expenditures department fiscal year end june 30 1881 appropriation year 1882 estimate 1883 report secretary navy exhibit condition branch service present valuable suggestion improvement call especial attention also append report advisory board convene devise suitable measure increase efficiency navy particularly report character number vessel necessary place upon foot commensurate necessity government strongly urge upon conviction every consideration national safety economy honor imperatively demand thorough rehabilitation navy full appreciation fact compliance suggestion head department advisory board must involve large expenditure public money earnestly recommend appropriation accomplish end seem desirable nothing inconsistent true public economy withhold mean necessary accomplish object intrust constitution national legislature one object one paramount importance declare fundamental law provision common defense surely nothing essential defense united state people efficiency navy many year maintain foreign government relation honorable peace relation may permanent desire every patriotic citizen republic heed teaching history shall forget life every nation emergency may arise resort arm alone save dishonor danger abroad threaten people distrust friendly profession government avoid well repel danger may threaten u future must prepare enforce policy think wise adopt must ready defend harbor aggression protect distribution ship war highway commerce varied interest foreign trade person property citizen abroad maintain everywhere honor flag distinguish position may rightfully claim among nation world report gratify exhibit growth efficiency postal service receipt postage ordinary source past fiscal year receipt business make total expenditure fiscal year deficit supply general treasury per cent amount expend receipt excess previous year excess estimate make two year ago present period business prosperity fairly begin whole number letter mail country last fiscal year exceed registry system report excellent condition remodel past four year good result amount registration fee collect last fiscal year increase fiscal year end june 30 1877 entire number letter package register year lose destroyed transit operation system multiply yearly impulse immigration rapid development newer state territory consequent demand additional mean intercommunication exchange past year 338 additional office establish make total operation date report year domestic money order aggregate value modification system suggest reduce fee money order exceed 5 10 cent 5 cent make maximum limit 100 place 50 legislation disposition unclaimed money order possession department recommend view fact total value exceed attention congress invite subject establish system saving depository connection department statistic mail transportation show past year railroad route increase length mile cost steamboat route decrease length mile cost star route decrease length mile cost nearly expensive route supersede railroad service cost star service must therefore rapidly decrease western state territory however call attention constantly increase cost railway mail service serious difficulty way make department postal intercourse foreign country keep pace growth domestic service within past year several country colony declare adhesion postal union include organize postal service except bolivia costa rica new zealand british colony australia already state great reduction recently make expense service investigation department justice department result presentation indictment person formerly connect service accuse offense united state enjoin upon official charge conduct case part government upon eminent counsel accession presidency call assistance duty prosecute utmost vigor law person may find chargeable fraud upon postal service act call attention necessity modify present system court united state necessity due large increase business especially supreme court litigation federal tribunal become greatly expand close late war long expansion might attributable abnormal condition community find immediately return peace prudence require change make constitution judicial tribunal become apparent immense increase litigation directly result wonderful growth development country ground belief business unite state court ever less volume present indeed likely much great generally recognize bench bar view fact congress already give much consideration subject make suggestion detail express hope deliberation may result legislation give early relief overburden court act also call attention disturbance public tranquillity past year territory arizona band arm desperado know cowboys probably numbering fifty one hundred men engage month commit act lawlessness brutality local authority unable repress depredation cowboy also extend mexico marauder reach arizona frontier every disposition meet exigency case embarrass lack authority deal effectually punishment crime commit within arizona ordinarily course leave territorial authority worthy consideration whether act necessarily tend embroil united state neighbor government declared crime united state incursion allude may perhaps within scope law revise statute sec 5286 forbid military expedition enterprise friendly state view speedy assemble body preferred await legislation wisdom occasion may seem demand may perhaps think proper provide set foot within territory brigandage arm marauding expedition friendly nation citizens shall punishable offense united state add event request territorial government protection unite state domestic violence government would powerless render assistance act 1795 chapter 36 pass time territorial government receive little attention congress enforce duty united state state government act 1807 chapter 39 apply also territories law seem remain force revision statute provision territory drop advise whether alteration intentional accidental seem territory offer protection accord staten constitution suggest legislation end seem whatever view may prevail policy recent legislation army cease part posse comitatus exception might well make permit military assist civil territorial authority enforce law united state use army would seem within allege evil legislation aim sparseness population circumstance often quite impracticable summon civil posse place officer justice require assistance military force within easy reach report secretary interior accompany document present elaborate account business department summary would extend place ask careful attention report prominent among matter challenge attention congress present session management indian affair question trouble embarrassment infancy government recently effort make solution serious determine consistent promising success easy resort convenient makeshift tide temporary difficulty grapple great permanent problem accordingly easy course almost invariably pursued natural time national territory seem almost illimitable contain many million acre far outside bound civilized settlement policy initiate aught else fruitful source indian complication refer course policy deal various indian tribe separate nationality relegate treaty stipulation occupancy immense reservation west encourage live savage life undisturbed earnest effort bring influence civilization unsatisfactory result sprung policy become apparent white settlement crowd border reservation indian sometimes contentedly sometimes transfer hunting ground dislodge whenever home desire adventurous settler removal frontier collision often precede lead frequent disastrous conflict race profitless discus chiefly responsible disturbance whose recital occupies large space upon page history deal appal fact though thousand life sacrifice hundred million dollar expend attempt solve indian problem within past year seem scarcely near solution half century ago government late cautiously steadily feel way adoption policy already produce gratify result judgment likely congress executive accord support relieve u ere long difficulty hitherto beset u success effort make introduce among indian custom pursuit civilize life gradually absorb mass citizen share right holden responsibility imperative need legislative action suggestion regard chiefly already call attention congress receive extent consideration first recommend passage act make law various state territory applicable indian reservation within border extend law state arkansas portion indian territory occupy five civilize tribe indian receive protection law allow maintain court right person property repeatedly beg privilege exercise would valuable progress toward civilization second even great importance measure frequently recommend predecessor office furtherance several bill time time introduce house congress enactment general law permit allotment severalty indian least desire reasonable quantity land secure patent protection make inalienable twenty year demand present welfare permanent advancement return considerate action part government reason believe indian large number would persuade sever tribal relation engage agricultural pursuit many realize fact hunting day best interest conform manner life new order thing great inducement assurance permanent title soil lead engage occupation till report increase interest husbandry justify hope belief enactment statute recommend would attend gratify result resort allotment system would direct powerful influence dissolve tribal bond prominent feature savage life tend strongly perpetuate third advise liberal appropriation support indian school confident belief course consistent wise economy even among uncultivated indian tribe report general urgent desire part chief old member education child unfortunate view fact past year mean command interior department purpose indian instruction prove utterly inadequate success school operation hampton carlisle forest grove encourage generous provision support institution prompt establishment others similar character doubtless much potent good day school upon reservation pupil altogether separate surroundings savage life bring constant contact civilization many phase subject great interest include within become limit communication discuss ably report secretary interior commissioner indian affair many year executive annual message congress urge necessity stringent legislation suppression polygamy territory especially territory utah exist statute punishment odious crime revolt moral religious sense christendom persistently contemptuously violate ever since enactment indeed spite commendable effort part authority represent united state territory law rare instance enforce reference presently make practically dead letter fact adherent mormon church rest upon polygamy corner stone recently people large number idaho arizona western territory well calculate excite lively interest apprehension impose upon congress executive duty array barbarous system power constitution law wield destruction reference already make obstacle united state officer encounter effort punish violation law prominent among obstacle difficulty procure legal evidence sufficient warrant conviction even case notorious offender attention call recent opinion supreme court unite state explain judgment reversal case mile convict bigamy utah court refers fact secrecy attend celebration marriage territory make proof polygamy difficult propriety suggest modify law evidence make wife incompetent testify husband suggestion approve recommend also passage act provide territory united state fact woman marry person charge bigamy shall disqualify witness upon trial offense recommend legislation person solemnize marriage territory shall require stringent penalty neglect refusal file certificate marriage supreme court territory doubtless congress may devise practicable measure obviate difficulty hitherto attended effort suppress iniquity assure determine purpose cooperate lawful discreet measure may propose end although system government contemplate nation provide support system education people measure calculate promote general intelligence virtue upon perpetuity institution greatly depend ever regarded indifference congress executive large portion public domain time time devote promotion education special reason set apart proceeds sale public land course government aid work education many exercise right suffrage unable read ballot cast upon many emerged condition slavery suddenly devolve responsibility citizenship portion country impoverish war please learn report commissioner education lately commendable increase interest effort instruction do local legislation private generosity supplement aid constitutionally afford national government would suggest fund dedicate purpose may wisely distribute different state accord ratio illiteracy mean locality need assistance reap special benefit report commissioner agriculture exhibit result experiment department engage past year make important suggestion reference agricultural development country steady increase population consequent addition number engage pursuit husbandry give department grow dignity importance commissioner suggestion touch capacity great usefulness deserve attention commend interest create promote appear report commissioner pension since 1860 original pension claim file allow inscribed pension roll reject abandon per cent whole number claim settle pending settlement original pension claim file prior july 1 1880 allow involve payment arrears date discharge case invalid date death termination prior right case data obtainable estimate 15 per cent number claim pending reject abandon would show probable rejection case probable admission claim involve payment arrears pension present force employ number adjudication remain new business intervene number claim could act upon period six year take january 1 1884 near period estimate case average amount arrears find every case allow would require first payment upon sum multiplying amount whole number probable admission give sum require first payment represent sum must pay upon claim file july 1 1880 pending entitle benefit arrears act amount may deduct ten fifteen million case claimant die person law would entitle succeed pension leave probable amount pay estimate account take case file since june 30 1880 pending must receive attention current business involve payment arrears beyond date filing claim number estimate 86 per cent allow state present force pension bureau 675 clerk estimate take six year dispose claim pending stated commissioner pension addition 250 clerk increase adjudicate force rather mechanical double amount work could accomplish case could act upon within three year aside consideration justice may urge speedy settlement claim file pension office less important score economy inasmuch fully clerical force office wholly occupy give attention correspondence thousand claimant whose case file past eighteen year fact sum enormous must expend government meet demand arrears pension admonition congress executive give cautious consideration similar project future great temptation presentation fictitious claim afford fact average sum obtain upon application lead suggest propriety make special appropriation prevention fraud advise appropriation internal improvement wisdom congress may deem public importance necessity improve navigation mississippi river justifies special allusion subject suggest adoption measure removal obstruction impede navigation great channel commerce letter accept nomination state judgment man incumbent office duty unfit perform lack ability fidelity integrity proper administration office demand sentiment would doubtless meet general acquiescence opinion widely divide upon wisdom practicability various reformatory scheme suggest certain proposed regulation govern appointment public office efficiency regulation distrust mainly seem exalt mere educational abstract test general business capacity even special fitness particular work hand seem rule apply management public service may properly conform main regulate conduct successful private business original appointment base upon ascertained fitness tenure office stable position responsibility far practicable fill promotion worthy efficient officer investigation complaint punishment official misconduct prompt thorough view express foregoing letter govern administration executive office doubtless share intelligent patriotic citizen however divergent opinion best method put practical operation example assertion original appointment base upon ascertained fitness open dispute question practice fitness effectually ascertain one year excited interest discussion measure slight variation detail lately urge upon attention congress executive principal feature scheme competitive examination save certain exception need specify plan would allow admission service low grade would accordingly demand vacancy high position fill promotion alone particulars conformity exist system great britain indeed success attend system country birth strong argument urge adoption fact however overlook certain feature english system generally receive favor country even among foremost advocate reform among 1 tenure office winch substantially life tenure 2 limitation maximum age applicant enter service whereby men middle life old exception rigidly exclude 3 retire allowance upon go office three element important factor problem others eliminate english system would effect radical change theory practice avow purpose system induce educate young men country devote live public employment assurance enter upon need never leave voluntary retirement shall recipients annual pension system entirety prove successful great britain seem generally concede even oppose adoption statute incorporate essential feature feel bound give approval whether would best interest public fix upon expedient immediate extensive application embrace certain feature english system exclude ignore others equal importance may seriously doubt even impressed grave importance correct evil inhere present method appointment example english rule shuts person age 25 year large number public employment make essential part system questionable whether attainment high number mark competitive examination criterion application appointment put test similar condition may also question whether admission service strictly limit low rank many characteristic go make model civil servant prominent among probity industry good sense good habit good temper patience order courtesy tact manly deference superior officer manly consideration inferior absence trait supply wide knowledge book promptitude answer question quality likely bring light competitive examination make success contest therefore indispensable condition public employment would likely result practical exclusion old applicant even though might possess qualification far superior young brilliant competitor suggestion must regard evince spirit opposition competitive plan extent successfully employ already may hereafter vindicate claim earnest supporter ought seriously consider whether application educational standard person mature year young men fresh school college would likely exalt mere intellectual proficiency quality equal great importance another feature propose system selection promotion officer government low grade except would fairly regarded exponent policy executive principle dominant party afford encouragement faithful public servant excite mind hope promotion find merit much desire would wise adopt rule rigid permit mode supply intermediate walk service many person fill subordinate position great credit lack quality requisite high post duty besides mode think action one whose service governmental bureau long continue often cramp routine procedure almost disqualify instituting change require public interest infusion new blood time time middle rank service might beneficial result subject discussion one grave importance evil complain eradicated work must gradual present english system growth year create single stroke executive legislative action beginning find order council promulgate 1855 patient cautious scrutiny working fifteen year later take present shape five year issuance order council time resort competitive examination experiment much extensively yet case country select committee house common make report house declare approval competitive plan deprecate nevertheless precipitancy general adoption likely endanger ultimate success tentative period result two method pass examination competitive examination closely watched compare may confine upon important question within stringent bound statutory enactment may profitably await result inquiry experiment submission portion nomination central board examiner select solely test qualification applicant may perhaps without resort competitive test put end mischief attend present system appointment may feasible vest board wide discretion ascertain characteristic attainment candidate particular already refer less important mere intellectual attainment congress deem advisable present session establish competitive test admission service doubt suggest shall deter give measure earnest support urgently recommend failure pas act upon subject appropriation per year may make enforcement section 1753 revise statute aid thus afford shall strive execute provision law accord letter spirit unwilling justice present civil servant government dismiss subject without declare dissent severe almost indiscriminate censure recently assail class indolent inefficient corrupt statement often make widely credit extent variety delicacy importance duty consider great majority employee government judgment deserve high commendation continue decline merchant marine united state greatly deplore view fact furnish large proportion freight commercial world shipment steadily rapidly increase surprise navigation interest diminish less export import half large either bulk value must peculiar hindrance development interest enterprise energy american mechanic capitalist would keep country least abreast rival friendly contest ocean supremacy substitution iron wood steam sail wrought great revolution carry trade world change could adverse america give navigation interest portion aid protection wisely bestow upon manufacture commend whole subject wisdom congress suggestion question great magnitude far reach importance engage attention 1875 supreme court unite state declare unconstitutional statute certain state impose upon shipowner consignee tax passenger arrive foreign country lieu thereof require bond indemnify state local authority expense future relief support passenger since decision expense attend care supervision immigrant fall state whose port land large majority immigrant immediately upon arrival proceed inland state territory seek permanent home manifestly unjust impose upon state whose shore first reach burden bear reason national importance subject recommend legislation regard supervision transitory care immigrant port debarkation regret state people alaska reason complain yet unprovided form government life property protect extent population justify application costly machinery territorial administration immediate necessity constitute form government promote education people secure administration justice senate last session pass bill provide construction building library congress fail become law provision suitable protection great collection book copyright department connect become subject national importance receive prompt attention report commissioner district columbia herewith transmit inform fully condition affair district urge vital importance legislation reclamation improvement marsh establishment harbor line along potomac river front represent present condition marsh seriously affect health resident adjacent part city greatly mar general aspect park stand washington monument improvement would add park park south executive mansion large area valuable land would transform believe dangerous nuisance attractive landscape extend river front recommend removal steam railway line surface street city location necessary depot place may convenient public accommodation call attention deficiency water supply seriously affect material prosperity city health comfort inhabitant commend subject favorable consideration importance timely legislation respect ascertainment declaration vote presidential elector sharply call attention people four year ago hop measure may devise another national election render unnecessary resort expedient temporary character determination question upon contest return question concern existence government liberty people suggest prolonged illness late president consequent incapacity perform function office provide second article constitution fifth clause first section case removal president office death resignation inability discharge power duty say office shall devolve intendment constitution specification inability discharge power duty say office one contingencies call exercise presidential function inability limited nature intellectual incapacity broad import must extent duration must existence establish president whose inability subject inquiry voice determine whether exists decision momentous delicate question confide contemplate constitution congress provide law precisely constitute inability tribunal authority ascertain inability prove temporary nature continuance lawfully exercise function executive tenure hold office continue president remainder four year term would elect president inability cease interval empower resume office lawful authority exercise would thereupon empowered resume power duty doubt important question receive early thoughtful consideration deeply impressed gravity responsibility unexpectedly devolve upon constant purpose cooperate measure promote glory country prosperity people