FOURTH ANNUAL MESSAGE.

WASHINGTON, _December 3, 1888_.

_To the Congress of the United States_:

As you assemble for the discharge of the duties you have assumed as the

representatives of a free and generous people, your meeting is marked

by an interesting and impressive incident. With the expiration of the

present session of the Congress the first century of our constitutional

existence as a nation will be completed.

Our survival for one hundred years is not sufficient to assure us that

we no longer have dangers to fear in the maintenance, with all its

promised blessings, of a government founded upon the freedom of the

people. The time rather admonishes us to soberly inquire whether in the

past we have always closely kept in the course of safety, and whether we

have before us a way plain and clear which leads to happiness and

perpetuity.

When the experiment of our Government was undertaken, the chart adopted

for our guidance was the Constitution. Departure from the lines there

laid down is failure. It is only by a strict adherence to the direction

they indicate and by restraint within the limitations they fix that we

can furnish proof to the world of the fitness of the American people for

self-government.

The equal and exact justice of which we boast as the underlying

principle of our institutions should not be confined to the relations of

our citizens to each other. The Government itself is under bond to the

American people that in the exercise of its functions and powers it will

deal with the body of our citizens in a manner scrupulously honest and

fair and absolutely just. It has agreed that American citizenship shall

be the only credential necessary to justify the claim of equality before

the law, and that no condition in life shall give rise to discrimination

in the treatment of the people by their Government.

The citizen of our Republic in its early days rigidly insisted upon full

compliance with the letter of this bond, and saw stretching out before

him a clear field for individual endeavor. His tribute to the support of

his Government was measured by the cost of its economical maintenance,

and he was secure in the enjoyment of the remaining recompense of his

steady and contented toil. In those days the frugality of the people was

stamped upon their Government, and was enforced by the free, thoughtful,

and intelligent suffrage of the citizen. Combinations, monopolies, and

aggregations of capital were either avoided or sternly regulated and

restrained. The pomp and glitter of governments less free offered no

temptation and presented no delusion to the plain people who, side by

side, in friendly competition, wrought for the ennoblement and dignity

of man, for the solution of the problem of free government, and for the

achievement of the grand destiny awaiting the land which God had given

them.

A century has passed. Our cities are the abiding places of wealth and

luxury; our manufactories yield fortunes never dreamed of by the fathers

of the Republic; our business men are madly striving in the race for

riches, and immense aggregations of capital outrun the imagination in

the magnitude of their undertakings.

We view with pride and satisfaction this bright picture of our country's

growth and prosperity, while only a closer scrutiny develops a somber

shading. Upon more careful inspection we find the wealth and luxury of

our cities mingled with poverty and wretchedness and unremunerative

toil. A crowded and constantly increasing urban population suggests the

impoverishment of rural sections and discontent with agricultural

pursuits. The farmer's son, not satisfied with his father's simple and

laborious life, joins the eager chase for easily acquired wealth.

We discover that the fortunes realized by our manufacturers are no

longer solely the reward of sturdy industry and enlightened foresight,

but that they result from the discriminating favor of the Government and

are largely built upon undue exactions from the masses of our people.

The gulf between employers and the employed is constantly widening, and

classes are rapidly forming, one comprising the very rich and powerful,

while in another are found the toiling poor.

As we view the achievements of aggregated capital, we discover the

existence of trusts, combinations, and monopolies, while the citizen is

struggling far in the rear or is trampled to death beneath an iron heel.

Corporations, which should be the carefully restrained creatures of the

law and the servants of the people, are fast becoming the people's

masters.

Still congratulating ourselves upon the wealth and prosperity of our

country and complacently contemplating every incident of change

inseparable from these conditions, it is our duty as patriotic citizens

to inquire at the present stage of our progress how the bond of the

Government made with the people has been kept and performed.

Instead of limiting the tribute drawn from our citizens to the

necessities of its economical administration, the Government persists in

exacting from the substance of the people millions which, unapplied and

useless, lie dormant in its Treasury. This flagrant injustice and this

breach of faith and obligation add to extortion the danger attending the

diversion of the currency of the country from the legitimate channels of

business.

Under the same laws by which these results are produced the Government

permits many millions more to be added to the cost of the living of our

people and to be taken from our consumers, which unreasonably swell the

profits of a small but powerful minority.

The people must still be taxed for the support of the Government under

the operation of tariff laws. But to the extent that the mass of out

citizens are inordinately burdened beyond any useful public purpose and

for the benefit of a favored few, the Government, under pretext of an

exercise of its taxing power, enters gratuitously into partnership with

these favorites, to their advantage and to the injury of a vast majority

of our people.

This is not equality before the law.

The existing situation is injurious to the health of our entire body

politic. It stifles in those for whose benefit it is permitted all

patriotic love of country, and substitutes in its place selfish greed

and grasping avarice. Devotion to American citizenship for its own sake

and for what it should accomplish as a motive to our nation's

advancement and the happiness of all our people is displaced by the

assumption that the Government, instead of being the embodiment of

equality, is but an instrumentality through which especial and

individual advantages are to be gained.

The arrogance of this assumption is unconcealed. It appears in the

sordid disregard of all but personal interests, in the refusal to abate

for the benefit of others one iota of selfish advantage, and in

combinations to perpetuate such advantages through efforts to control

legislation and improperly influence the suffrages of the people.

The grievances of those not included within the circle of these

beneficiaries, when fully realized, will surely arouse irritation and

discontent. Our farmers, long suffering and patient, struggling in the

race of life with the hardest and most unremitting toil, will not fail

to see, in spite of misrepresentations and misleading fallacies, that

they are obliged to accept such prices for their products as are fixed

in foreign markets where they compete with the farmers of the world;

that their lands are declining in value while their debts increase, and

that without compensating favor they are forced by the action of the

Government to pay for the benefit of others such enhanced prices for the

things they need that the scanty returns of their labor fail to furnish

their support or leave no margin for accumulation.

Our workingmen, enfranchised from all delusions and no longer frightened

by the cry that their wages are endangered by a just revision of our

tariff laws, will reasonably demand through such revision steadier

employment, cheaper means of living in their homes, freedom for

themselves and their children from the doom of perpetual servitude, and

an open door to their advancement beyond the limits of a laboring class.

Others of our citizens, whose comforts and expenditures are measured by

moderate salaries and fixed incomes, will insist upon the fairness and

justice of cheapening the cost of necessaries for themselves and their

families.

When to the selfishness of the beneficiaries of unjust discrimination

under our laws there shall be added the discontent of those who suffer

from such discrimination, we will realize the fact that the beneficent

purposes of our Government, dependent upon the patriotism and

contentment of our people, are endangered.

Communism is a hateful thing and a menace to peace and organized

government; but the communism of combined wealth and capital, the

outgrowth of overweening cupidity and selfishness, which insidiously

undermines the justice and integrity of free institutions, is not less

dangerous than the communism of oppressed poverty and toil, which,

exasperated by injustice and discontent, attacks with wild disorder the

citadel of rule.

He mocks the people who proposes that the Government shall protect the

rich and that they in turn will care for the laboring poor. Any

intermediary between the people and their Government or the least

delegation of the care and protection the Government owes to the

humblest citizen in the land makes the boast of free institutions a

glittering delusion and the pretended boon of American citizenship a

shameless imposition.

A just and sensible revision of our tariff laws should be made for the

relief of those of our countrymen who suffer under present conditions.

Such a revision should receive the support of all who love that justice

and equality due to American citizenship; of all who realize that in

this justice and equality our Government finds its strength and its

power to protect the citizen and his property; of all who believe that

the contented competence and comfort of many accord better with the

spirit of our institutions than colossal fortunes unfairly gathered in

the hands of a few; of all who appreciate that the forbearance and

fraternity among our people, which recognize the value of every American

interest, are the surest guaranty of our national progress, and of all

who desire to see the products of American skill and ingenuity in every

market of the world, with a resulting restoration of American commerce.

The necessity of the reduction of our revenues is so apparent as

to be generally conceded, but the means by which this end shall be

accomplished and the sum of direct benefit which shall result to our

citizens present a controversy of the utmost importance. There should be

no scheme accepted as satisfactory by which the burdens of the people

are only apparently removed. Extravagant appropriations of public money,

with all their demoralizing consequences, should not be tolerated,

either as a means of relieving the Treasury of its present surplus or as

furnishing pretext for resisting a proper reduction in tariff rates.

Existing evils and injustice should be honestly recognized, boldly met,

and effectively remedied. There should be no cessation of the struggle

until a plan is perfected, fair and conservative toward existing

industries, but which will reduce the cost to consumers of the

necessaries of life, while it provides for our manufacturers the

advantage of freer raw materials and permits no injury to the interests

of American labor.

The cause for which the battle is waged is comprised within lines

clearly and distinctly defined. It should never be compromised. It is

the people's cause.

It can not be denied-that the selfish and private interests which

are so persistently heard when efforts are made to deal in a just and

comprehensive manner with our tariff laws are related to, if they are

not responsible for, the sentiment largely prevailing among the people

that the General Government is the fountain of individual and private

aid; that it may be expected to relieve with paternal care the distress

of citizens and communities, and that from the fullness of its Treasury

it should, upon the slightest possible pretext of promoting the general

good, apply public funds to the benefit of localities and individuals.

Nor can it be denied that there is a growing assumption that, as against

the Government and in favor of private claims and interests, the usual

rules and limitations of business principles and just dealing should be

waived.

These ideas have been unhappily much encouraged by legislative

acquiescence. Relief from contracts made with the Government is too

easily accorded in favor of the citizen; the failure to support claims

against the Government by proof is often supplied by no better

consideration than the wealth of the Government and the poverty of the

claimant; gratuities in the form of pensions are granted upon no other

real ground than the needy condition of the applicant, or for reasons

less valid; and large sums are expended for public buildings and other

improvements upon representations scarcely claimed to be related to

public needs and necessities.

The extent to which the consideration of such matters subordinate and

postpone action upon subjects of great public importance, but involving

no special private or partisan interest, should arrest attention and

lead to reformation.

A few of the numerous illustrations of this condition may be stated.

The crowded condition of the calendar of the Supreme Court, and the

delay to suitors and denial of justice resulting therefrom, has been

strongly urged upon the attention of the Congress, with a plan for the

relief of the situation approved by those well able to judge of its

merits. While this subject remains without effective consideration, many

laws have been passed providing for the holding of terms of inferior

courts at places to suit the convenience of localities, or to lay the

foundation of an application for the erection of a new public building.

Repeated recommendations have been submitted for the amendment and

change of the laws relating to our public lands so that their spoliation

and diversion to other uses than as homes for honest settlers might be

prevented. While a measure to meet this conceded necessity of reform

remains awaiting the action of the Congress, many claims to the public

lands and applications for their donation, in favor of States and

individuals, have been allowed.

A plan in aid of Indian management, recommended by those well informed

as containing valuable features in furtherance of the solution of the

Indian problem, has thus far failed of legislative sanction, while

grants of doubtful expediency to railroad corporations, permitting them

to pass through Indian reservations, have greatly multiplied.

The propriety and necessity of the erection of one or more prisons for

the confinement of United States convicts, and a post-office building in

the national capital, are not disputed. But these needs yet remain

unanswered, while scores of public buildings have been erected where

their necessity for public purposes is not apparent.

A revision of our pension laws could easily be made which would rest

upon just principles and provide for every worthy applicant. But while

our general pension laws remain confused and imperfect, hundreds of

private pension laws are annually passed, which are the sources of

unjust discrimination and popular demoralization.

Appropriation bills for the support of the Government are defaced by

items and provisions to meet private ends, and it is freely asserted by

responsible and experienced parties that a bill appropriating money for

public internal improvement would fail to meet with favor unless it

contained items more for local and private advantage than for public

benefit.

These statements can be much emphasized by an ascertainment of the

proportion of Federal legislation which either bears upon its face its

private character or which upon examination develops such a motive

power.

And yet the people wait and expect from their chosen representatives

such patriotic action as will advance the welfare of the entire country;

and this expectation can only be answered by the performance of public

duty with unselfish purpose. Our mission among the nations of the earth

and our success in accomplishing the work God has given the American

people to do require of those intrusted with the making and execution of

our laws perfect devotion, above all other things, to the public good.

This devotion will lead us to strongly resist all impatience of

constitutional limitations of Federal power and to persistently check

the increasing tendency to extend the scope of Federal legislation into

the domain of State and local jurisdiction upon the plea of subserving

the public welfare. The preservation of the partitions between proper

subjects of Federal and local care and regulation is of such importance

under the Constitution, which is the law of our very existence, that no

consideration of expediency or sentiment should tempt us to enter upon

doubtful ground. We have undertaken to discover and proclaim the richest

blessings of a free government, with the Constitution as our guide. Let

us follow the way it points out; it will not mislead us. And surely no

one who has taken upon himself the solemn obligation to support and

preserve the Constitution can find justification or solace for

disloyalty in the excuse that he wandered and disobeyed in search of a

better way to reach the public welfare than the Constitution offers.

What has been said is deemed not inappropriate at a time when, from a

century's height, we view the way already trod by the American people

and attempt to discover their future path.

The seventh President of the United States--the soldier and statesman

and at all times the firm and brave friend of the people--in vindication

of his course as the protector of popular rights and the champion of

true American citizenship, declared:

The ambition which leads me on is an anxious desire and a fixed

determination to restore to the people unimpaired the sacred trust they

have confided to my charge; to heal the wounds of the Constitution and

to preserve it from further violation; to persuade my countrymen, so far

as I may, that it is not in a splendid government supported by powerful

monopolies and aristocratical establishments that they will find

happiness or their liberties protection, but in a plain system, void of

pomp, protecting all and granting favors to none, dispensing its

blessings like the dews of heaven, unseen and unfelt save in the

freshness and beauty they contribute to produce. It is such a government

that the genius of our people requires--such an one only under which our

States may remain for ages to come united, prosperous, and free.

In pursuance of a constitutional provision requiring the President from

time to time to give to the Congress information of the state of the

Union, I have the satisfaction to announce that the close of the year

finds the United States in the enjoyment of domestic tranquillity and at

peace with all the nations.

Since my last annual message our foreign relations have been

strengthened and improved by performance of international good offices

and by new and renewed treaties of amity, commerce, and reciprocal

extradition of criminals.

Those international questions which still await settlement are all

reasonably within the domain of amicable negotiation, and there is no

existing subject of dispute between the United States and any foreign

power that is not susceptible of satisfactory adjustment by frank

diplomatic treatment.

The questions between Great Britain and the United States relating to

the rights of American fishermen, under treaty and international comity,

in the territorial waters of Canada and Newfoundland, I regret to say,

are not yet satisfactorily adjusted.

These matters were fully treated in my message to the Senate of February

20, 1888,[19] together with which a convention, concluded under my

authority with Her Majesty's Government on the 15th of February last,

for the removal of all causes of misunderstanding, was submitted by me

for the approval of the Senate.

This treaty having been rejected by the Senate, I transmitted a message

to the Congress on the 23d of August last[20] reviewing the transactions

and submitting for consideration certain recommendations for legislation

concerning the important questions involved.

Afterwards, on the 12th of September,[21] in response to a resolution

of the Senate, I again communicated fully all the information in my

possession as to the action of the government of Canada affecting the

commercial relations between the Dominion and the United States,

including the treatment of American fishing vessels in the ports and

waters of British North America.

These communications have all been published, and therefore opened to

the knowledge of both Houses of Congress, although two were addressed to

the Senate alone.

Comment upon or repetition of their contents would be superfluous, and I

am not aware that anything has since occurred which should be added to

the facts therein stated. Therefore I merely repeat, as applicable to

the present time, the statement which will be found in my message to the

Senate of September 12 last, that--

Since March 3, 1887, no case has been reported to the Department of

State wherein complaint was made of unfriendly or unlawful treatment of

American fishing vessels on the part of the Canadian authorities in

which reparation was not promptly and satisfactorily obtained by the

United States consul-general at Halifax.

Having essayed in the discharge of my duty to procure by negotiation the

settlement of a long-standing cause of dispute and to remove a constant

menace to the good relations of the two countries, and continuing to be

of opinion that the treaty of February last, which failed to receive the

approval of the Senate, did supply "a satisfactory, practical, and final

adjustment, upon a basis honorable and just to both parties, of the

difficult and vexed question to which it related," and having

subsequently and unavailingly recommended other legislation to Congress

which I hoped would suffice to meet the exigency created by the

rejection of the treaty, I now again invoke the earnest and immediate

attention of the Congress to the condition of this important question as

it now stands before them and the country, and for the settlement of

which I am deeply solicitous.

Near the close of the month of October last occurrences of a deeply

regrettable nature were brought to my knowledge, which made it my

painful but imperative duty to obtain with as little delay as possible a

new personal channel of diplomatic intercourse in this country with the

Government of Great Britain.

The correspondence in relation to this incident will in due course be

laid before you, and will disclose the unpardonable conduct of the

official referred to in his interference by advice and counsel with the

suffrages of American citizens in the very crisis of the Presidential

election then near at hand, and also in his subsequent public

declarations to justify his action, superadding impugnment of the

Executive and Senate of the United States in connection with important

questions now pending in controversy between the two Governments.

The offense thus committed was most grave, involving disastrous

possibilities to the good relations of the United States and Great

Britain, constituting a gross breach of diplomatic privilege and an

invasion of the purely domestic affairs and essential sovereignty of the

Government to which the envoy was accredited.

Having first fulfilled the just demands of international comity by

affording full opportunity for Her Majesty's Government to act in relief

of the situation, I considered prolongation of discussion to be

unwarranted, and thereupon declined to further recognize the diplomatic

character of the person whose continuance in such function would destroy

that mutual confidence which is essential to the good understanding of

the two Governments and was inconsistent with the welfare and

self-respect of the Government of the United States.

The usual interchange of communication has since continued through Her

Majesty's legation in this city.

My endeavors to establish by international cooperation measures for the

prevention of the extermination of fur seals in Bering Sea have not

been relaxed, and I have hopes of being enabled shortly to submit an

effective and satisfactory conventional project with the maritime powers

for the approval of the Senate.

The coastal boundary between our Alaskan possessions and British

Columbia, I regret to say, has not received the attention demanded by

its importance, and which on several occasions heretofore I have had the

honor to recommend to the Congress.

The admitted impracticability, if not impossibility, of making an

accurate and precise survey and demarcation of the boundary line as it

is recited in the treaty with Russia under which Alaska was ceded to the

United States renders it absolutely requisite for the prevention of

international jurisdictional complications that adequate appropriation

for a reconnoissance and survey to obtain proper knowledge of the

locality and the geographical features of the boundary should be

authorized by Congress with as little delay as possible.

Knowledge to be only thus obtained is an essential prerequisite for

negotiation for ascertaining a common boundary, or as preliminary to any

other mode of settlement.

It is much to be desired that some agreement should be reached with Her

Majesty's Government by which the damages to life and property on the

Great Lakes may be alleviated by removing or humanely regulating the

obstacles to reciprocal assistance to wrecked or stranded vessels.

The act of June 19, 1878, which offers to Canadian vessels free access

to our inland waters in aid of wrecked or disabled vessels, has not yet

become effective through concurrent action by Canada.

The due protection of our citizens of French origin or descent from

claim of military service in the event of their returning to or visiting

France has called forth correspondence which was laid before you at the

last session.

In the absence of conventional agreement as to naturalization, which is

greatly to be desired, this Government sees no occasion to recede from

the sound position it has maintained not only with regard to France, but

as to all countries with which the United States have not concluded

special treaties.

Twice within the last year has the imperial household of Germany been

visited by death; and I have hastened to express the sorrow of this

people, and their appreciation of the lofty character of the late aged

Emperor William, and their sympathy with the heroism under suffering of

his son the late Emperor Frederick.

I renew my recommendation of two years ago for the passage of a bill for

the refunding to certain German steamship lines of the interest upon

tonnage dues illegally exacted.

On the 12th [2d] of April last[22] I laid before the House of

Representatives full information respecting our interests in Samoa; and

in the subsequent correspondence on the same subject, which will be laid

before you in due course, the history of events in those islands will be

found.

In a message accompanying my approval, on the 1st day of October last,

of a bill for the exclusion of Chinese laborers, I laid before Congress

full information and all correspondence touching the negotiation of the

treaty with China concluded at this capital on the 12th day of March,

1888, and which, having been confirmed by the Senate with certain

amendments, was rejected by the Chinese Government. This message

contained a recommendation that a sum of money be appropriated as

compensation to Chinese subjects who had suffered injuries at the hands

of lawless men within our jurisdiction. Such appropriation having been

duly made, the fund awaits reception by the Chinese Government.

It is sincerely hoped that by the cessation of the influx of this class

of Chinese subjects, in accordance with the expressed wish of both

Governments, a cause of unkind feeling has been permanently removed.

On the 9th of August, 1887, notification was given by the Japanese

minister at this capital of the adjournment of the conference for the

revision of the treaties of Japan with foreign powers, owing to the

objection of his Government to the provision in the draft jurisdictional

convention which required the submission of the criminal code of the

Empire to the powers in advance of its becoming operative. This

notification was, however, accompanied with an assurance of Japan's

intention to continue the work of revision.

Notwithstanding this temporary interruption of negotiations, it is hoped

that improvements may soon be secured in the jurisdictional system as

respects foreigners in Japan, and relief afforded to that country from

the present undue and oppressive foreign control in matters of commerce.

I earnestly recommend that relief be provided for the injuries

accidentally caused to Japanese subjects in the island Ikisima by the

target practice of one of our vessels.

A diplomatic mission from Korea has been received, and the formal

intercourse between the two countries contemplated by the treaty of 1882

is now established.

Legislative provision is hereby recommended to organize and equip

consular courts in Korea.

Persia has established diplomatic representation at this capital, and

has evinced very great interest in the enterprise and achievements of

our citizens. I am therefore hopeful that beneficial commercial

relations between the two countries may be brought about.

I announce with sincere regret that Hayti has again become the theater

of insurrection, disorder, and bloodshed. The titular government of

President Saloman has been forcibly overthrown and he driven out of the

country to France, where he has since died.

The tenure of power has been so unstable amid the war of factions that

has ensued since the expulsion of President Saloman that no government

constituted by the will of the Haytian people has been recognized as

administering responsibly the affairs of that country. Our

representative has been instructed to abstain from interference between

the warring factions, and a vessel of our Navy has been sent to Haytian

waters to sustain our minister and for the protection of the persons and

property of American citizens.

Due precautions have been taken to enforce our neutrality laws and

prevent our territory from becoming the base of military supplies for

either of the warring factions.

Under color of a blockade, of which no reasonable notice had been given,

and which does not appear to have been efficiently maintained, a seizure

of vessels under the American flag has been reported, and in consequence

measures to prevent and redress any molestation of our innocent

merchantmen have been adopted.

Proclamation was duly made on the 9th day of November, 1887, of the

conventional extensions of the treaty of June 3, 1875, with Hawaii,

under which relations of such special and beneficent intercourse have

been created.

In the vast field of Oriental commerce now unfolded from our Pacific

borders no feature presents stronger recommendations for Congressional

action than the establishment of communication by submarine telegraph

with Honolulu.

The geographical position of the Hawaiian group in relation to our

Pacific States creates a natural interdependency and mutuality of

interest which our present treaties were intended to foster, and which

make close communication a logical and commercial necessity.

The wisdom of concluding a treaty of commercial reciprocity with Mexico

has been heretofore stated in my messages to Congress, and the lapse of

time and growth of commerce with that close neighbor and sister Republic

confirm the judgment so expressed.

The precise relocation of our boundary line is needful, and adequate

appropriation is now recommended.

It is with sincere satisfaction that I am enabled to advert to the

spirit of good neighborhood and friendly cooperation and conciliation

that has marked the correspondence and action of the Mexican authorities

in their share of the task of maintaining law and order about the line

of our common boundary.

The long-pending boundary dispute between Costa Rica and Nicaragua was

referred to my arbitration, and by an award made on the 22d of March

last the question has been finally settled to the expressed satisfaction

of both of the parties in interest.

The Empire of Brazil, in abolishing the last vestige of slavery among

Christian nations, called forth the earnest congratulations of this

Government in expression of the cordial sympathies of our people.

The claims of nearly all other countries against Chile growing out of

her late war with Bolivia and Peru have been disposed of, either by

arbitration or by a lump settlement. Similar claims of our citizens will

continue to be urged upon the Chilean Government, and it is hoped will

not be subject to further delays.

A comprehensive treaty of amity and commerce with Peru was proclaimed on

November 7 last, and it is expected that under its operation mutual

prosperity and good understanding will be promoted.

In pursuance of the policy of arbitration, a treaty to settle the claim

of Santos, an American citizen, against Ecuador has been concluded under

my authority, and will be duly submitted for the approval of the Senate.

Like disposition of the claim of Carlos Butterfield against Denmark and

of Van Bokkelen against Hayti will probably be made, and I trust the

principle of such settlements may be extended in practice under the

approval of the Senate.

Through unforeseen causes, foreign to the will of both Governments, the

ratification of the convention of December 5, 1885, with Venezuela, for

the rehearing of claims of citizens of the United States under the

treaty of 1866, failed of exchange within the term provided, and a

supplementary convention, further extending the time for exchange of

ratifications and explanatory of an ambiguous provision of the prior

convention, now awaits the advice and consent of the Senate.

Although this matter, in the stage referred to, concerns only the

concurrent treaty-making power of one branch of Congress, I advert to it

in view of the interest repeatedly and conspicuously shown by you in

your legislative capacity in favor of a speedy and equitable adjustment

of the questions growing out of the discredited judgments of the

previous mixed commission of Caracas. With every desire to do justice to

the representations of Venezuela in this regard, the time seems to have

come to end this matter, and I trust the prompt confirmation by both

parties of the supplementary action referred to will avert the need of

legislative or other action to prevent the longer withholding of such

rights of actual claimants as may be shown to exist.

As authorized by the Congress, preliminary steps have been taken for the

assemblage at this capital during the coming year of the representatives

of South and Central American States, together with those of Mexico,

Hayti, and San Domingo, to discuss sundry important monetary and

commercial topics.

Excepting in those cases where, from reasons of contiguity of territory

and the existence of a common border line incapable of being guarded,

reciprocal commercial treaties may be found expedient, it is believed

that commercial policies inducing freer mutual exchange of products can

be most advantageously arranged by independent but cooperative

legislation.

In the mode last mentioned the control of our taxation for revenue will

be always retained in our own hands unrestricted by conventional

agreements with other governments.

In conformity also with Congressional authority, the maritime powers

have been invited to confer in Washington in April next upon the

practicability of devising uniform rules and measures for the greater

security of life and property at sea. A disposition to accept on the

part of a number of the powers has already been manifested, and if the

cooperation of the nations chiefly interested shall be secured important

results may be confidently anticipated.

The act of June 26, 1884, and the acts amendatory thereof, in relation

to tonnage duties, have given rise to extended correspondence with

foreign nations with whom we have existing treaties of navigation and

commerce, and have caused wide and regrettable divergence of opinion in

relation to the imposition of the duties referred to. These questions

are important, and I shall make them the subject of a special and more

detailed communication at the present session.

With the rapid increase of immigration to our shores and the facilities

of modern travel, abuses of the generous privileges afforded by our

naturalization laws call for their careful revision.

The easy and unguarded manner in which certificates of American

citizenship can now be obtained has induced a class, unfortunately

large, to avail themselves of the opportunity to become absolved from

allegiance to their native land, and yet by a foreign residence to

escape any just duty and contribution of service to the country of their

proposed adoption. Thus, while evading the duties of citizenship to the

United States, they may make prompt claim for its national protection

and demand its intervention in their behalf. International complications

of a serious nature arise, and the correspondence of the State

Department discloses the great number and complexity of the questions

which have been raised.

Our laws regulating the issue of passports should be carefully revised,

and the institution of a central bureau of registration at the capital

is again strongly recommended. By this means full particulars of each

case of naturalization in the United States would be secured and

properly indexed and recorded, and thus many cases of spurious

citizenship would be detected and unjust responsibilities would be

avoided.

The reorganization of the consular service is a matter of serious

importance to our national interests. The number of existing principal

consular offices is believed to be greater than is at all necessary

for the conduct of the public business. It need not be our policy

to maintain more than a moderate number of principal offices, each

supported by a salary sufficient to enable the incumbent to live in

comfort, and so distributed as to secure the convenient supervision,

through subordinate agencies, of affairs over a considerable district.

I repeat the recommendations heretofore made by me that the

appropriations for the maintenance of our diplomatic and consular

service should be recast; that the so-called notarial or unofficial

fees, which our representatives abroad are now permitted to treat as

personal perquisites, should be forbidden; that a system of consular

inspection should be instituted, and that a limited number of

secretaries of legation at large should be authorized.

Preparations for the centennial celebration, on April 30, 1889, of the

inauguration of George Washington as President of the United States, at

the city of New York, have been made by a voluntary organization of the

citizens of that locality, and believing that an opportunity should be

afforded for the expression of the interest felt throughout the country

in this event, I respectfully recommend fitting and cooperative action

by Congress on behalf of the people of the United States.

The report of the Secretary of the Treasury exhibits in detail the

condition of our national finances and the operations of the several

branches of the Government related to his Department.

The total ordinary revenues of the Government for the fiscal year ended

June 30, 1888, amounted to $379,266,074.76, of which $219,091,173.63 was

received from customs duties and $124,296,871.98 from internal-revenue

taxes.

The total receipts from all sources exceeded those for the fiscal year

ended June 30, 1887, by $7,862,797.10.

The ordinary expenditures of the Government for the fiscal year ending

June 30, 1888, were $259,653,958.67, leaving a surplus of

$119,612,116.09.

The decrease in these expenditures as compared with the fiscal year

ended June 30, 1887, was $8,278,221.30, notwithstanding the payment of

more than $5,000,000 for pensions in excess of what was paid for that

purpose in the latter-mentioned year.

The revenues of the Government for the year ending June 30, 1889,

ascertained for the quarter ended September 30, 1888, and estimated for

the remainder of the time, amount to $377,000,000, and the actual and

estimated ordinary expenditures for the same year are $273,000,000,

leaving an estimated surplus of $104,000,000.

The estimated receipts for the year ending June 30, 1890, are

$377,000,000, and the estimated ordinary expenditures for the same time

are $275,767,488.34, showing a surplus of $101,232,511.66.

The foregoing statements of surplus do not take into account the sum

necessary to be expended to meet the requirements of the sinking-fund

act, amounting to more than $47,000,000 annually.

The cost of collecting the customs revenues for the last fiscal year was

2.44 per cent; for the year 1885 it was 3.77 per cent.

The excess of internal-revenue taxes collected during the last fiscal

year over those collected for the year ended June 30, 1887, was

$5,489,174.26, and the cost of collecting this revenue decreased from

3.4 per cent in 1887 to less than 3.2 per cent for the last year. The

tax collected on oleomargarine was $723,948.04 for the year ending June

30, 1887, and $864,139.88 for the following year.

The requirements of the sinking-fund act have been met for the year

ended June 30, 1888, and for the current year also, by the purchase of

bonds. After complying with this law as positively required, and bonds

sufficient for that purpose had been bought at a premium, it was not

deemed prudent to further expend the surplus in such purchases until

the authority to do so should be more explicit. A resolution, however,

having been passed by both Houses of Congress removing all doubt as to

Executive authority, daily purchases of bonds were commenced on the 23d

day of April, 1888, and have continued until the present time. By this

plan bonds of the Government not yet due have been purchased up to and

including the 30th day of November, 1888, amounting to $94,700,400, the

premium paid thereon amounting to $17,508,613.08.

The premium added to the principal of these bonds represents an

investment yielding about 2 per cent interest for the time they still

had to run, and the saving to the Government represented by the

difference between the amount of interest at 2 per cent upon the sum

paid for principal and premium and what it would have paid for interest

at the rate specified in the bonds if they had run to their maturity is

about $27,165,000.

At first sight this would seem to be a profitable and sensible

transaction on the part of the Government, but, as suggested by the

Secretary of the Treasury, the surplus thus expended for the purchase of

bonds was money drawn from the people in excess of any actual need of

the Government and was so expended rather than allow it to remain idle

in the Treasury. If this surplus, under the operation of just and

equitable laws, had been left in the hands of the people, it would have

been worth in their business at least 6 per cent per annum. Deducting

from the amount of interest upon the principal and premium of these

bonds for the time they had to run at the rate of 6 per cent the saving

of 2 per cent made for the people by the purchase of such bonds, the

loss will appear to be $55,760,000.

This calculation would seem to demonstrate that if excessive and

unnecessary taxation is continued and the Government is forced to pursue

this policy of purchasing its own bonds at the premiums which it will be

necessary to pay, the loss to the people will be hundreds of millions of

dollars.

Since the purchase of bonds was undertaken as mentioned nearly all that

have been offered were at last accepted. It has been made quite apparent

that the Government was in danger of being subjected to combinations to

raise their price, as appears by the instance cited by the Secretary of

the offering of bonds of the par value of only $326,000 so often that

the aggregate of the sums demanded for their purchase amounted to more

than $19,700,000.

Notwithstanding the large sums paid out in the purchase of bonds,

the surplus in the Treasury on the 30th day of November, 1888, was

$52,234,610.01, after deducting about $20,000,000 just drawn out for

the payment of pensions.

At the close of the fiscal year ended June 30, 1887, there had been

coined under the compulsory silver-coinage act $266,988,280 in silver

dollars, $55,504,310 of which were in the hands of the people.

On the 30th day of June, 1888, there had been coined $299,708,790; and

of this $55,829,303 was in circulation in coin, and $200,387,376 in

silver certificates, for the redemption of which silver dollars to that

amount were held by the Government.

On the 30th day of November, 1888, $312,570,990 had been coined,

$60,970,990 of the silver dollars were actually in circulation, and

$237,418,346 in certificates.

The Secretary recommends the suspension of the further coinage of

silver, and in such recommendation I earnestly concur.

For further valuable information and timely recommendations I ask the

careful attention of the Congress to the Secretary's report.

The Secretary of War reports that the Army at the date of the last

consolidated returns consisted of 2,189 officers and 24,549 enlisted

men.

The actual expenditures of the War Department for the fiscal year ended

June 30, 1888, amounted to $41,165,107.07, of which sum $9,158,516.63

was expended for public works, including river and harbor improvements.

"The Board of Ordnance and Fortifications" provided for under the act

approved September 22 last was convened October 30, 1888, and plans and

specifications for procuring forgings for 8, 10, and 12 inch guns, under

provisions of section 4, and also for procuring 12-inch breech-loading

mortars, cast iron, hooped with steel, under the provisions of section 5

of the said act, were submitted to the Secretary of War for reference to

the board, by the Ordnance Department, on the same date.

These plans and specifications having been promptly approved by the

board and the Secretary of War, the necessary authority to publish

advertisements inviting proposals in the newspapers throughout the

country was granted by the Secretary on November 12, and on November 13

the advertisements were sent out to the different newspapers designated,

The bids for the steel forgings are to be opened on December 20, 1888,

and for the mortars on December 15, 1888.

A board of ordnance officers was convened at the Watervliet Arsenal on

October 4, 1888, to prepare the necessary plans and specifications for

the establishment of an army gun factory at that point. The preliminary

report of this board, with estimates for shop buildings and officers'

quarters, was approved by the Board of Ordnance and Fortifications

November 6 and 8. The specifications and form of advertisement and

instructions to bidders have been prepared, and advertisements inviting

proposals for the excavations for the shop building and for erecting

the two sets of officers' quarters have been published. The detailed

drawings and specifications for the gun-factory building are well in

hand, and will be finished within three or four months, when bids will

be invited for the erection of the building. The list of machines, etc.,

is made out, and it is expected that the plans for the large lathes,

etc., will be completed within about four months, and after approval by

the Board of Ordnance and Fortifications bids for furnishing the same

will be invited. The machines and other fixtures will be completed as

soon as the shop is in readiness to receive them, probably about July,

1890.

Under the provisions of the Army bill for the procurement of pneumatic

dynamite guns, the necessary specifications are now being prepared, and

advertisements for proposals will issue early in December. The guns will

probably be of 15 inches caliber and fire a projectile that will carry a

charge each of about 500 pounds of explosive gelatine with full-caliber

projectiles. The guns will probably be delivered in from six to ten

months from the date of the contract, so that all the guns of this class

that can be procured under the provisions of the law will be purchased

during the year 1889.

I earnestly request that the recommendations contained in the

Secretary's report, all of which are, in my opinion, calculated to

increase the usefulness and discipline of the Army, may receive the

consideration of the Congress. Among these the proposal that there

should be provided a plan for the examination of officers to test their

fitness for promotion is of the utmost importance. This reform has been

before recommended in the reports of the Secretary, and its expediency

is so fully demonstrated by the argument he presents in its favor that

its adoption should no longer be neglected.

The death of General Sheridan in August last was a national affliction.

The Army then lost the grandest of its chiefs. The country lost a brave

and experienced soldier, a wise and discreet counselor, and a modest and

sensible man. Those who in any manner came within the range of his

personal association will never fail to pay deserved and willing homage

to his greatness and the glory of his career, but they will cherish with

more tender sensibility the loving memory of his simple, generous, and

considerate nature.

The Apache Indians, whose removal from their reservation in Arizona

followed the capture of those of their number who engaged in a bloody

and murderous raid during a part of the years 1885 and 1886, are now

held as prisoners of war at Mount Vernon Barracks, in the State of

Alabama. They numbered on the 31st day of October, the date of the last

report, 83 men, 170 women, 70 boys, and 59 girls; in all, 382 persons.

The commanding officer states that they are in good health and

contented, and that they are kept employed as fully as is possible in

the circumstances. The children, as they arrive at a suitable age, are

sent to the Indian schools at Carlisle and Hampton.

Last summer some charitable and kind people asked permission to send two

teachers to these Indians for the purpose of instructing the adults as

well as such children as should be found there. Such permission was

readily granted, accommodations were provided for the teachers, and some

portions of the buildings at the barracks were made available for school

purposes. The good work contemplated has been commenced, and the

teachers engaged are paid by the ladies with whom the plan originated.

I am not at all in sympathy with those benevolent but injudicious people

who are constantly insisting that these Indians should be returned to

their reservation. Their removal was an absolute necessity if the lives

and property of citizens upon the frontier are to be at all regarded by

the Government. Their continued restraint at a distance from the scene

of their repeated and cruel murders and outrages is still necessary.

It is a mistaken philanthropy, every way injurious, which prompts the

desire to see these savages returned to their old haunts. They are in

their present location as the result of the best judgment of those

having official responsibility in the matter, and who are by no means

lacking in kind consideration for the Indians. A number of these

prisoners have forfeited their lives to outraged law and humanity.

Experience has proved that they are dangerous and can not be trusted.

This is true not only of those who on the warpath have heretofore

actually been guilty of atrocious murder, but of their kindred and

friends, who, while they remained upon their reservation, furnished aid

and comfort to those absent with bloody intent.

These prisoners should be treated kindly and kept in restraint far from

the locality of their former reservation; they should be subjected to

efforts calculated to lead to their improvement and the softening of

their savage and cruel instincts, but their return to their old home

should be persistently resisted.

The Secretary in his report gives a graphic history of these Indians,

and recites with painful vividness their bloody deeds and the unhappy

failure of the Government to manage them by peaceful means. It will be

amazing if a perusal of this history will allow the survival of a desire

for the return of these prisoners to their reservation upon sentimental

or any other grounds.

The report of the Secretary of the Navy demonstrates very intelligent

management in that important Department, and discloses the most

satisfactory progress in the work of reconstructing the Navy made during

the past year. Of the ships in course of construction five, viz. the

_Charleston_, _Baltimore_, _Yorktown_, _Vesuvius_, and the _Petrel_,

have in that time been launched and are rapidly approaching completion;

and in addition to the above, the _Philadelphia_, the _San Francisco_, the

_Newark_, the _Bennington_, the _Concord_, and the Herreshoff torpedo

boat are all under contract for delivery to the Department during the

next year. The progress already made and being made gives good ground

for the expectation that these eleven vessels will be incorporated as

part of the American Navy within the next twelve months.

The report shows that notwithstanding the large expenditures for new

construction and the additional labor they involve the total ordinary or

current expenditures of the Department for the three years ending June

30, 1888, are less by more than 20 per cent than such expenditures for

the three years ending June 30, 1884.

The various steps which have been taken to improve the business methods

of the Department are reviewed by the Secretary. The purchasing of

supplies has been consolidated and placed under a responsible bureau

head. This has resulted in the curtailment of open purchases, which in

the years 1884 and 1885 amounted to over 50 per cent of all the

purchases of the Department, to less than 11 per cent; so that at the

present time about 90 per cent of the total departmental purchases are

made by contract and after competition. As the expenditures on this

account exceed an average of $2,000,000 annually, it is evident that an

important improvement in the system has been inaugurated and substantial

economies introduced.

The report of the Postmaster-General shows a marked increase of business

in every branch of the postal service.

The number of post-offices on July 1, 1888, was 57,376, an increase of

6,124 in three years and of 2,219 for the last fiscal year. The

latter-mentioned increase is classified as follows:

New England States

Middle States 181

Southern States and Indian Territory (41) 1,406

The States and Territories of the Pacific Coast 190

The ten States and Territories of the West and Northwest 435

District of Columbia 2

-----

Total 2,219

Free-delivery offices have increased from 189 in the fiscal year ended

June 30, 1887, to 358 in the year ended June 30, 1888.

In the Railway Mail Service there has been an increase in one year of

168 routes, and in the number of miles traveled per annum an increase of

15,795,917.48. The estimated increase of railroad service for the year

was 6,000 miles, but the amount of new railroad service actually put on

was 12,764.50 miles.

The volume of business in the Money-Order Division, including

transactions in postal notes, reached the sum of upward of $143,000,000

for the year.

During the past year parcel-post conventions have been concluded with

Barbados, the Bahamas, British Honduras, and Mexico, and are now under

negotiation with all the Central and South American States. The increase

of correspondence with foreign countries during the past three years is

gratifying, and is especially notable and exceptional with the Central

and South American States and with Mexico. As the greater part of mail

matter exchanged with these countries is commercial in its character,

this increase is evidence of the improved business relations with them.

The practical operation of the parcel-post conventions, so far as

negotiated, has served to fulfill the most favorable predictions as to

their benefits. In January last a general postal convention was

negotiated with the Dominion of Canada, which went into operation on

March 1, and which practically makes one postal territory of the United

States and Canada. Under it merchandise parcels may now be transmitted

through the mails at fourth-class rates of postage.

It is not possible here to touch even the leading heads of the great

postal establishment to illustrate the enormous and rapid growth of its

business and the needs for legislative readjustment of much of its

machinery that it has outgrown. For these and valuable recommendations

of the Postmaster-General attention is earnestly invited to his report.

A Department whose revenues have increased from $19,772,000 in 1870 to

$52,700,000 in 1888, despite reductions of postage which have enormously

reduced rates of revenue while greatly increasing its business, demands

the careful consideration of the Congress as to all matters suggested by

those familiar with its operations, and which are calculated to increase

its efficiency and usefulness.

A bill proposed by the Postmaster-General was introduced at the last

session of the Congress by which a uniform standard in the amount of

gross receipts would fix the right of a community to a public building

to be erected by the Government for post-office purposes. It was

demonstrated that, aside from the public convenience and the promotion

of harmony among citizens, invariably disturbed by change of leasings

and of site, it was a measure of the highest economy and of sound

business judgment. It was found that the Government was paying in rents

at the rate of from 7 to 10 per cent per annum on what the cost of such

public buildings would be. A very great advantage resulting from such a

law would be the prevention of a large number of bills constantly

introduced for the erection of public buildings at places, and involving

expenditures not justified by public necessity. I trust that this

measure will become a law at the present session of Congress.

Of the total number of postmasters 54,874 are of the fourth class.

These, of course, receive no allowances whatever for expenses in the

service, and their compensation is fixed by percentages on receipts at

their respective offices. This rate of compensation may have been, and

probably was, at some time just, but the standard has remained unchanged

through the several reductions in the rates of postage. Such reductions

have necessarily cut down the compensation of these officials, while it

undoubtedly increased the business performed by them. Simple justice

requires attention to this subject, to the end that fourth-class

postmasters may receive at least an equivalent to that which the law

itself, fixing the rate, intended for them.

Another class of postal employees whose condition seems to demand

legislation is that of clerks in post-offices, and I call especial

attention to the repeated recommendations of the Postmaster-General for

their classification. Proper legislation of this character for the

relief of carriers in the free-delivery service has been frequent.

Provision is made for their promotion; for substitutes for them on

vacation; for substitutes for holidays, and limiting their hours of

labor. Seven million dollars has been appropriated for the current year

to provide for them, though the total number of offices where they are

employed is but 358 for the past fiscal year, with an estimated increase

for the current year of but 40, while the total appropriation for all

clerks in offices throughout the United States is $5,950,000.

The legislation affecting the relations of the Government with railroads

is in need of revision. While for the most part the railroad companies

throughout the country have cordially cooperated with the Post-Office

Department in rendering excellent service, yet under the law as it

stands, while the compensation to them for carrying the mail is limited

and regulated, and although railroads are made post-roads by law, there

is no authority reposed anywhere to compel the owner of a railroad to

take and carry the United States mails. The only alternative provided by

act of Congress in case of refusal is for the Postmaster-General to send

mail forward by pony express. This is but an illustration of ill-fitting

legislation, reasonable and proper at the time of its enactment, but

long since outgrown and requiring readjustment.

It is gratifying to note from the carefully prepared statistics

accompanying the Postmaster-General's report that notwithstanding the

great expansion of the service the rate of expenditure has been lessened

and efficiency has been improved in every branch; that fraud and crime

have decreased; that losses from the mails have been reduced, and that

the number of complaints of the service made to postmasters and to the

Department are far less than ever before.

The transactions of the Department of Justice for the fiscal year ended

June 30, 1888, are contained in the report of the Attorney-General, as

well as a number of valuable recommendations, the most part of which are

repetitions of those previously made, and ought to receive

consideration.

It is stated in this report that though judgments in civil suits

amounting to $552,021.08 were recovered in favor of the Government

during the year, only the sum of $132,934 was collected thereon; and

that though fines, penalties, and forfeitures were imposed amounting to

$541,808.43, only $109,648.42 of that sum was paid on account thereof.

These facts may furnish an illustration of the sentiment which

extensively prevails that a debt due the Government should cause no

inconvenience to the citizen.

It also appears from this report that though prior to March, 1885, there

had been but 6 convictions in the Territories of Utah and Idaho under

the laws of 1862 and 1882, punishing polygamy and unlawful cohabitation

as crimes, there have been since that date nearly 600 convictions under

these laws and the statutes of 1887; and the opinion is expressed that

under such a firm and vigilant execution of these laws and the advance

of ideas opposed to the forbidden practices polygamy within the United

States is virtually at an end.

Suits instituted by the Government under the provisions of the act of

March 3, 1887, for the termination of the corporations known as the

Perpetual Emigrating Fund Company and the Church of Jesus Christ of

Latter-day Saints have resulted in a decree favorable to the Government,

declaring the charters of these corporations forfeited and escheating

their property. Such property, amounting in value to more than $800,000,

is in the hands of a receiver pending further proceedings, an appeal

having been taken to the Supreme Court of the United States.

In the report of the Secretary of the Interior, which will be laid

before you, the condition of the various branches of our domestic

affairs connected with that Department and its operations during the

past year are fully exhibited. But a brief reference to some of the

subjects discussed in this able and interesting report can here be made;

but I commend the entire report to the attention of the Congress, and

trust that the sensible and valuable recommendations it contains will

secure careful consideration.

I can not too strenuously insist upon the importance of proper measures

to insure a right disposition of our public lands, not only as a matter

of present justice, but in forecast of the consequences to future

generations. The broad, rich acres of our agricultural plains have been

long-preserved by nature to become her untrammeled gift to a people

civilized and free, upon which should rest in well-distributed ownership

the numerous homes of enlightened, equal, and fraternal citizens. They

came to national possession with the warning example in our eyes of the

entail of iniquities in landed proprietorship which other countries have

permitted and still suffer. We have no excuse for the violation of

principles cogently taught by reason and example, nor for the allowance

of pretexts which have sometimes exposed our lands to colossal greed.

Laws which open a door to fraudulent acquisition, or administration

which permits favor to rapacious seizure by a favored few of expanded

areas that many should enjoy, are accessory to offenses against our

national welfare and humanity not to be too severely condemned or

punished.

It is gratifying to know that something has been done at last to

redress the injuries to our people and check the perilous tendency of

the reckless waste of the national domain. That over 80,000,000 acres

have been arrested from illegal usurpation, improvident grants, and

fraudulent entries and claims, to be taken for the homesteads of honest

industry--although less than the greater areas thus unjustly lost--must

afford a profound gratification to right-feeling citizens, as it is

a recompense for the labors and struggles of the recovery. Our dear

experience ought sufficiently to urge the speedy enactment of measures

of legislation which will confine the future disposition of our

remaining agricultural lands to the uses of actual husbandry and genuine

homes.

Nor should our vast tracts of so-called desert lands be yielded up to

the monopoly of corporations or grasping individuals, as appears to be

much the tendency under the existing statute. These lands require but

the supply of water to become fertile and productive. It is a problem of

great moment how most wisely for the public good that factor shall be

furnished. I can not but think it perilous to suffer either these lands

or the sources of their irrigation to fall into the hands of monopolies,

which by such means may exercise lordship over the areas dependent on

their treatment for productiveness. Already steps have been taken to

secure accurate and scientific information of the conditions, which is

the prime basis of intelligent action. Until this shall be gained the

course of wisdom appears clearly to lie in a suspension of further

disposal, which only promises to create rights antagonistic to the

common interest. No harm can follow this cautionary conduct. The land

will remain, and the public good presents no demand for hasty

dispossession of national ownership and control.

I commend also the recommendations that appropriate measures be taken to

complete the adjustment of the various grants made to the States for

internal improvements and of swamp and overflowed lands, as well as to

adjudicate and finally determine the validity and extent of the numerous

private land claims. All these are elements of great injustice and peril

to the settlers upon the localities affected; and now that their

existence can not be avoided, no duty is more pressing than to fix as

soon as possible their bounds and terminate the threats of trouble which

arise from uncertainty.

The condition of our Indian population continues to improve and the

proofs multiply that the transforming change, so much to be desired,

which shall substitute for barbarism enlightenment and civilizing

education, is in favorable progress. Our relations with these people

during the year have been disturbed by no serious disorders, but rather

marked by a better realization of their true interests and increasing

confidence and good will. These conditions testify to the value of the

higher tone of consideration and humanity which has governed the later

methods of dealing with them, and commend its continued observance.

Allotments in severalty have been made on some reservations until all

those entitled to land thereon have had their shares assigned, and the

work is still continued. In directing the execution of this duty I have

not aimed so much at rapid dispatch as to secure just and fair

arrangements which shall best conduce to the objects of the law by

producing satisfaction with the results of the allotments made. No

measure of general effect has ever been entered on from which more may

be fairly hoped if it shall be discreetly administered. It proffers

opportunity and inducement to that independence of spirit and life which

the Indian peculiarly needs, while at the same time the inalienability

of title affords security against the risks his inexperience of affairs

or weakness of character may expose him to in dealing with others.

Whenever begun upon any reservation it should be made complete, so that

all are brought to the same condition, and as soon as possible community

in lands should cease by opening such as remain unallotted to

settlement. Contact with the ways of industrious and successful farmers

will perhaps add a healthy emulation which will both instruct and

stimulate.

But no agency for the amelioration of this people appears to me so

promising as the extension, urged by the Secretary, of such complete

facilities of education as shall at the earliest possible day embrace

all teachable Indian youth, of both sexes, and retain them with a kindly

and beneficent hold until their characters are formed and their

faculties and dispositions trained to the sure pursuit of some form of

useful industry. Capacity of the Indian no longer needs demonstration.

It is established. It remains to make the most of it, and when that

shall be done the curse will be lifted, the Indian race saved, and the

sin of their oppression redeemed. The time of its accomplishment depends

upon the spirit and justice with which it shall be prosecuted. It can

not be too soon for the Indian nor for the interests and good name of

the nation.

The average attendance of Indian pupils on the schools increased by over

900 during the year, and the total enrollment reached 15,212. The cost

of maintenance was not materially raised. The number of teachable Indian

youth is now estimated at 40,000, or nearly three times the enrollment

of the schools. It is believed the obstacles in the way of instructing

are all surmountable, and that the necessary expenditure would be a

measure of economy.

The Sioux tribes on the great reservation of Dakota refused to assent to

the act passed by the Congress at its last session for opening a portion

of their lands to settlement, notwithstanding modification of the terms

was suggested which met most of their objections. Their demand is for

immediate payment of the full price of $1.25 per acre for the entire

body of land the occupancy of which they are asked to relinquish.

The manner of submission insured their fair understanding of the law,

and their action was undoubtedly as thoroughly intelligent as their

capacity admitted. It is at least gratifying that no reproach of

over-reaching can in any manner lie against the Government, however

advisable the favorable completion of the negotiation may have been

esteemed.

I concur in the suggestions of the Secretary regarding the Turtle

Mountain Indians, the two reservations in California, and the Crees.

They should, in my opinion, receive immediate attention.

The number of pensioners added to the rolls during the fiscal year ended

June 30, 1888, is 60,252, and increase of pensions was granted in 45,716

cases. The names of 15,730 pensioners were dropped from the rolls during

the year from various causes, and at the close of the year the number of

persons of all classes receiving pensions was 452,557. Of these there

were 806 survivors of the War of 1812, 10,787 widows of those who served

in that war, 16,060 soldiers of the Mexican War, and 5,104 widows of

said soldiers.

One hundred and two different rates of pensions are paid to these

beneficiaries, ranging from $2 to $416.66 per month.

The amount paid for pensions during the fiscal year was $78,775,861.92,

being an increase over the preceding year of $5,308,280.22. The expenses

attending the maintenance and operation of the Pension Bureau during

that period was $3,262,524.67, making the entire expenditures of the

Bureau $82,038,386.57, being 21-1/2 per cent of the gross income and

nearly 31 per cent of the total expenditures of the Government during

the year.

I am thoroughly convinced that our general pension laws should be

revised and adjusted to meet as far as possible, in the light of our

experience, all meritorious cases. The fact that 102 different rates of

pensions are paid can not, in my opinion, be made consistent with

justice to the pensioners or to the Government; and the numerous private

pension bills that are passed, predicated upon the imperfection of

general laws, while they increase in many cases existing inequality and

injustice, lend additional force to the recommendation for a revision of

the general laws on this subject.

The laxity of ideas prevailing among a large number of our people

regarding pensions is becoming every day more marked. The principles

upon which they should be granted are in danger of being altogether

ignored, and already pensions are often claimed because the applicants

are as much entitled as other successful applicants, rather than upon

any disability reasonably attributable to military service. If the

establishment of vicious precedents be continued, if the granting of

pensions be not divorced from partisan and other unworthy and irrelevant

considerations, and if the honorable name of veteran unfairly becomes by

these means but another term for one who constantly clamors for the aid

of the Government, there is danger that injury will be done to the fame

and patriotism of many whom our citizens all delight to honor, and that

a prejudice will be aroused unjust to meritorious applicants for

pensions.

The Department of Agriculture has continued, with a good measure of

success, its efforts to develop the processes, enlarge the results,

and augment the profits of American husbandry. It has collected and

distributed practical information, introduced and tested new plants,

checked the spread of contagious diseases of farm animals, resisted the

advance of noxious insects and destructive fungous growths, and sought

to secure to agricultural labor the highest reward of effort and the

fullest immunity from loss. Its records of the year show that the season

of 1888 has been one of medium production. A generous supply of the

demands of consumption has been assured, and a surplus for exportation,

moderate in certain products and bountiful in others, will prove a

benefaction alike to buyer and grower.

Four years ago it was found that the great cattle industry of the

country was endangered, and those engaged in it were alarmed at the

rapid extension of the European lung plague of pleuro-pneumonia. Serious

outbreaks existed in Illinois, Missouri, and Kentucky, and in Tennessee

animals affected were held in quarantine. Five counties in New York and

from one to four counties in each of the States of New Jersey,

Pennsylvania, Delaware, and Maryland were almost equally affected.

With this great danger upon us and with the contagion already in the

channels of commerce, with the enormous direct and indirect losses

already being caused by it, and when only prompt and energetic action

could be successful, there were in none of these States any laws

authorizing this Department to eradicate the malady or giving the State

officials power to cooperate with it for this purpose. The Department

even lacked both the requisite appropriation and authority.

By securing State cooperation in connection with authority from Congress

the work of eradication has been pressed successfully, and this dreaded

disease has been extirpated from the Western States and also from the

Eastern States, with the exception of a few restricted areas, which are

still under supervision. The danger has thus been removed, and trade and

commerce have been freed from the vexatious State restrictions which

were deemed necessary for a time.

During the past four years the process of diffusion, as applied to the

manufacture of sugar from sorghum and sugar cane, has been introduced

into this country and fully perfected by the experiments carried on

by the Department of Agriculture. This process is now universally

considered to be the most economical one, and it is through it that the

sorghum-sugar industry has been established upon a firm basis and the

road to its future success opened. The adoption of this diffusion

process is also extending in Louisiana and other sugar-producing parts

of the country, and will doubtless soon be the only method employed for

the extraction of sugar from the cane.

An exhaustive study has also within the same period been undertaken of

the subject of food adulteration and the best analytical methods for

detecting it. A part of the results of this work has already been

published by the Department, which, with the matter in course of

preparation, will make the most complete treatise on that subject that

has ever been published in any country.

The Department seeks a progressive development. It would combine the

discoveries of science with the economics and amelioration of rural

practice. A supervision of the endowed experimental-station system

recently provided for is a proper function of the Department, and is now

in operation. This supervision is very important, and should be wisely

and vigilantly directed, to the end that the pecuniary aid of the

Government in favor of intelligent agriculture should be so applied as

to result in the general good and to the benefit of all our people, thus

justifying the appropriations made from the public Treasury.

The adjustment of the relations between the Government and the railroad

companies which have received land grants and the guaranty of the public

credit in aid of the construction of their roads should receive early

attention. The report of a majority of the commissioners appointed to

examine the affairs and indebtedness of these roads, in which they favor

an extension of the time for the payment of such indebtedness in at

least one case where the corporation appears to be able to comply with

well-guarded and exact terms of such extension, and the reenforcement

of their opinion by gentlemen of undoubted business judgment and

experience, appointed to protect the interests of the Government as

directors of said corporation, may well lead to the belief that such an

extension would be to the advantage of the Government.

The subject should be treated as a business proposition with a view to a

final realization of its indebtedness by the Government, rather than as

a question to be decided upon prejudice or by way of punishment for

previous wrongdoing.

The report of the Commissioners of the District of Columbia, with its

accompanying documents, gives in detail the operations of the several

departments of the District government, and furnishes evidence that the

financial affairs of the District are at present in such satisfactory

condition as to justify the Commissioners in submitting to the Congress

estimates for desirable and needed improvements.

The Commissioners recommend certain legislation which in their opinion

is necessary to advance the interests of the District.

I invite your special attention to their request for such legislation

as will enable the Commissioners without delay to collect, digest, and

properly arrange the laws by which the District is governed, and which

are now embraced in several collections, making them available only with

great difficulty and labor. The suggestions they make touching desirable

amendments to the laws relating to licenses granted for carrying on the

retail traffic in spirituous liquors, to the observance of Sunday, to

the proper assessment and collection of taxes, to the speedy punishment

of minor offenders, and to the management and control of the reformatory

and charitable institutions supported by Congressional appropriations

are commended to careful consideration.

I again call attention to the present inconvenience and the danger to

life and property attending the operation of steam railroads through and

across the public streets and roads of the District. The propriety of

such legislation as will properly guard the use of these railroads and

better secure the convenience and safety of citizens is manifest.

The consciousness that I have presented but an imperfect statement

of the condition of our country and its wants occasions no fear that

anything omitted is not known and appreciated by the Congress, upon whom

rests the responsibility of intelligent legislation in behalf of a great

nation and a confiding people.

As public servants we shall do our duty well if we constantly guard the

rectitude of our intentions, maintain unsullied our love of country, and

with unselfish purpose strive for the public good.