double-turreted monitors _Miantonomoh_ and _Monterey_. Since
that date, of vessels theretofore authorized, there have been placed in
their first commission 3 first-class and 2 second-class battle ships, 2
armored cruisers, 1 harbor-defense ram, and 5 double-turreted monitors,
including the _Maine_ and the _Puritan_, just completed. Eight
new unarmored cruisers and 2 new gunboats have also been commissioned.
The _Iowa_, another battle ship, will be completed about March 1,
and at least 4 more gunboats will be ready for sea in the early spring.
It is gratifying to state that our ships and their outfits are believed
to be equal to the best that can be manufactured elsewhere, and that
such notable reductions have been made in their cost as to justify the
statement that quite a number of vessels are now being constructed at
rates as low as those that prevail in European shipyards.
Our manufacturing facilities are at this time ample for all possible
naval contingencies. Three of our Government navy-yards--those at
Mare Island, Cal., Norfolk, Va., and Brooklyn, N.Y.--are equipped for
shipbuilding, our ordnance plant in Washington is equal to any in
the world, and at the torpedo station we are successfully making the
highest grades of smokeless powder. The first-class private shipyards
at Newport News, Philadelphia, and San Francisco are building battle
ships; eleven contractors, situated in the States of Maine, Rhode
Island, Pennsylvania, New Jersey, Maryland, Virginia, and the State
of Washington, are constructing gunboats or torpedo boats; two plants
are manufacturing large quantities of first-class armor, and American
factories are producing automobile torpedoes, powder, projectiles,
rapid-fire guns, and everything else necessary for the complete outfit
of naval vessels.
There have been authorized by Congress since March, 1893, 5 battle
ships, 6 light-draft gunboats, 16 torpedo boats, and 1 submarine torpedo
boat. Contracts for the building of all of them have been let. The
Secretary expresses the opinion that we have for the present a
sufficient supply of cruisers and gunboats, and that hereafter the
construction of battle ships and torpedo boats will supply our needs.
Much attention has been given to the methods of carrying on departmental
business. Important modifications in the regulations have been made,
tending to unify the control of shipbuilding as far as may be under the
Bureau of Construction and Repair, and also to improve the mode of
purchasing supplies for the Navy by the Bureau of Supplies and Accounts.
The establishment under recent acts of Congress of a supply fund with
which to purchase these supplies in large quantities and other
modifications of methods have tended materially to their cheapening and
better quality.
The War College has developed into an institution which it is believed
will be of great value to the Navy in teaching the science of war, as
well as in stimulating professional zeal in the Navy, and it will be
especially useful in the devising of plans for the utilization in case
of necessity of all the naval resources of the United States.
The Secretary has persistently adhered to the plan he found in operation
for securing labor at navy-yards through boards of labor employment, and
has done much to make it more complete and efficient. The naval officers
who are familiar with this system and its operation express the decided
opinion that its results have been to vastly improve the character of
the work done at our yards and greatly reduce its cost.
Discipline among the officers and men of the Navy has been maintained
to a high standard and the percentage of American citizens enlisted has
been very much increased.
The Secretary is considering and will formulate during the coming winter
a plan for laying up ships in reserve, thereby largely reducing the cost
of maintaining our vessels afloat. This plan contemplates that battle
ships, torpedo boats, and such of the cruisers as are not needed for
active service at sea shall be kept in reserve with skeleton crews on
board to keep them in condition, cruising only enough to insure the
efficiency of the ships and their crews in time of activity.
The economy to result from this system is too obvious to need comment.
The Naval Militia, which was authorized a few years ago as an
experiment, has now developed into a body of enterprising young men,
active and energetic in the discharge of their duties and promising
great usefulness. This establishment has nearly the same relation to our
Navy as the National Guard in the different States bears to our Army,
and it constitutes a source of supply for our naval forces the
importance of which is immediately apparent.
The report of the Secretary of the Interior presents a comprehensive and
interesting exhibit of the numerous and important affairs committed to
his supervision. It is impossible in this communication to do more than
briefly refer to a few of the subjects concerning which the Secretary
gives full and instructive information.
The money appropriated on account of this Department and for its
disbursement for the fiscal year ended June 30, 1896, amounted to more
than $157,000,000, or a greater sum than was appropriated for the entire
maintenance of the Government for the two fiscal years ended June 30,
1861.
Our public lands, originally amounting to 1,840,000,000 acres, have been
so reduced that only about 600,000,000 acres still remain in Government
control, excluding Alaska. The balance, being by far the most valuable
portion, has been given away to settlers, to new States, and to
railroads or sold at a comparatively nominal sum. The patenting of land
in execution of railroad grants has progressed rapidly during the
year, and since the 4th day of March, 1893, about 25,000,000 acres have
thus been conveyed to these corporations.
I agree with the Secretary that the remainder of our public lands should
be more carefully dealt with and their alienation guarded by better
economy and greater prudence.
The commission appointed from the membership of the National Academy of
Sciences, provided for by an act of Congress, to formulate plans for a
national forestry system will, it is hoped, soon be prepared to present
the result of thorough and intelligent examination of this important
subject.
The total Indian population of the United States is 177,235, according
to a census made in 1895, exclusive of those within the State of New
York and those comprising the Five Civilized Tribes. Of this number
there are approximately 38,000 children of school age. During the year
23,393 of these were enrolled in schools. The progress which has
attended recent efforts to extend Indian-school facilities and the
anticipation of continued liberal appropriations to that end can not
fail to afford the utmost satisfaction to those who believe that the
education of Indian children is a prime factor in the accomplishment of
Indian civilization.
It may be said in general terms that in every particular the improvement
of the Indians under Government care has been most marked and
encouraging.
The Secretary, the Commissioner of Indian Affairs, and the agents having
charge of Indians to whom allotments have been made strongly urge the
passage of a law prohibiting the sale of liquor to allottees who have
taken their lands in severalty. I earnestly join in this recommendation
and venture to express the hope that the Indian may be speedily
protected against this greatest of all obstacles to his well-being and
advancement.
The condition of affairs among the Five Civilized Tribes, who occupy
large tracts of land in the Indian Territory and who have governments
of their own, has assumed such an aspect as to render it almost
indispensable that there should be an entire change in the relations of
these Indians to the General Government. This seems to be necessary in
furtherance of their own interests, as well as for the protection of
non-Indian residents in their territory. A commission organized and
empowered under several recent laws is now negotiating with these
Indians for the relinquishment of their courts and the division of their
common lands in severalty and are aiding in the settlement of the
troublesome question of tribal membership. The reception of their first
proffers of negotiation was not encouraging, but through patience and
such conduct on their part as demonstrated that their intentions were
friendly and in the interest of the tribes the prospect of success has
become more promising. The effort should be to save these Indians from
the consequences of their own mistakes and improvidence and to secure to
the real Indian his rights as against intruders and professed friends
who profit by his retrogression. A change is also needed to protect life
and property through the operation of courts conducted according to
strict justice and strong enough to enforce their mandates.
As a sincere friend of the Indian, I am exceedingly anxious that
these reforms should be accomplished with the consent and aid of the
tribes and that no necessity may be presented for radical or drastic
legislation. I hope, therefore, that the commission now conducting
negotiations will soon be able to report that progress has been made
toward a friendly adjustment of existing difficulties.
It appears that a very valuable deposit of gilsonite or asphaltum has
been found on the reservation in Utah occupied by the Uncompahgre Ute
Indians. Every consideration of care for the public interest and every
sensible business reason dictate such management or disposal of this
important source of public revenue as will except it from the general
rules and incidents attending the ordinary disposition of public lands
and secure to the Government a fair share at least of its advantages in
place of its transfer for a nominal sum to interested individuals.
I indorse the recommendation made by the present Secretary of the
Interior, as well as his predecessor, that a permanent commission,
consisting of three members, one of whom shall be an army officer, be
created to perform the duties now devolving upon the Commissioner and
Assistant Commissioner of Indian Affairs. The management of the Bureau
involves such numerous and diverse details and the advantages of an
uninterrupted policy are so apparent that I hope the change suggested
will meet the approval of the Congress.
The diminution of our enormous pension roll and the decrease of pension
expenditure, which have been so often confidently foretold, still fail
in material realization. The number of pensioners on the rolls at the
close of the fiscal year ended June 30, 1896, was 970,678. This is the
largest number ever reported. The amount paid exclusively for pensions
during the year was $138,214,761.94, a slight decrease from that of the
preceding year, while the total expenditures on account of pensions,
including the cost of maintaining the Department and expenses attending
pension distribution, amounted to $142,206,550.59, or within a very
small fraction of one third of the entire expense of supporting the
Government during the same year. The number of new pension certificates
issued was 90,640. Of these, 40,374 represent original allowances of
claims and 15,878 increases of existing pensions.
The number of persons receiving pensions from the United States, but
residing in foreign countries, at the close of the last fiscal year was
3,781, and the amount paid to them during the year was $582,735.38.
The sum appropriated for the payment of pensions for the current fiscal
year, ending June 30, 1897, is $140,000,000, and for the succeeding year
it is estimated that the same amount will be necessary.
The Commissioner of Pensions reports that during the last fiscal year
339 indictments were found against violators of the pension laws. Upon
these indictments 167 convictions resulted.
In my opinion, based upon such statements as these and much other
information and observation, the abuses which have been allowed to creep
into our pension system have done incalculable harm in demoralizing our
people and undermining good citizenship. I have endeavored within my
sphere of official duty to protect our pension roll and make it what it
should be, a roll of honor, containing the names of those disabled in
their country's service and worthy of their country's affectionate
remembrance. When I have seen those who pose as the soldiers' friends
active and alert in urging greater laxity and more reckless pension
expenditure, while nursing selfish schemes, I have deprecated the
approach of a situation when necessary retrenchment and enforced economy
may lead to an attack upon pension abuses so determined as to overlook
the discrimination due to those who, worthy of a nation's care, ought to
live and die under the protection of a nation's gratitude.
The Secretary calls attention to the public interests involved in an
adjustment of the obligations of the Pacific railroads to the
Government. I deem it to be an important duty to especially present this
subject to the consideration of the Congress.
On January 1, 1897, with the amount already matured, more than
$13,000,000 of the principal of the subsidy bonds issued by the United
States in aid of the construction of the Union Pacific Railway,
including its Kansas line, and more than $6,000,000 of like bonds issued
in aid of the Central Pacific Railroad, including those issued to the
Western Pacific Railroad Company, will have fallen due and been paid or
must on that day be paid by the Government. Without any reference to the
application of the sinking fund now in the Treasury, this will create
such a default on the part of these companies to the Government as will
give it the right to at once institute proceedings to foreclose its
mortgage lien. In addition to this indebtedness, which will be due
January 1, 1897, there will mature between that date and January 1,
1899, the remaining principal of such subsidy bonds, which must also be
met by the Government. These amount to more than $20,000,000 on account
of the Union Pacific lines and exceed $21,000,000 on account of the
Central Pacific lines.
The situation of these roads and the condition of their indebtedness to
the Government' have been fully set forth in the reports of various
committees to the present and prior Congresses, and as early as 1887
they were thoroughly examined by a special commission appointed pursuant
to an act of Congress. The considerations requiring an adjustment of the
Government's relations to the companies have been clearly presented and
the conclusion reached with practical uniformity that if these relations
are not terminated they should be revised upon a basis securing their
safe continuance.
Under section 4 of the act of Congress passed March 3, 1887, the
President is charged with the duty, in the event that any mortgage or
other incumbrance paramount to the interest of the United States in the
property of the Pacific railroads should exist and be lawfully liable
to be enforced, to direct the action of the Departments of Treasury and
of Justice in the protection of the interest of the United States by
redemption or through judicial proceedings, including foreclosures of
the Government liens.
In view of the fact that the Congress has for a number of years almost
constantly had under consideration various plans for dealing with the
conditions existing between these roads and the Government, I have thus
far felt justified in withholding action under the statute above
mentioned.
In the case of the Union Pacific Company, however, the situation
has become especially and immediately urgent. Proceedings have been
instituted to foreclose a first mortgage upon those aided parts of the
main lines upon which the Government holds a second and subordinate
mortgage lien. In consequence of those proceedings and increasing
complications, added to the default occurring on the 1st day of January,
1897, a condition will be presented at that date, so far as this company
is concerned, that must emphasize the mandate of the act of 1887 and
give to Executive duty under its provisions a more imperative aspect.
Therefore, unless Congress shall otherwise direct or shall have
previously determined upon a different solution of the problem, there
will hardly appear to exist any reason for delaying beyond the date of
the default above mentioned such Executive action as will promise to
subserve the public interests and save the Government from the loss
threatened by further inaction.
The Department of Agriculture is so intimately related to the welfare of
our people and the prosperity of our nation that it should constantly
receive the care and encouragement of the Government. From small
beginnings it has grown to be the center of agricultural intelligence
and the source of aid and encouragement to agricultural efforts. Large
sums of money are annually appropriated for the maintenance of this
Department, and it must be confessed that the legislation relating to it
has not always been directly in the interest of practical farming or
properly guarded against waste and extravagance. So far, however, as
public money has been appropriated fairly and sensibly to help those who
actually till the soil, no expenditure has been more profitably made or
more generally approved by the people.
Under the present management of the Department its usefulness has been
enhanced in every direction, and at the same time strict economy has
been enforced to the utmost extent permitted by Congressional action.
From the report of the Secretary it appears that through careful and
prudent financial management he has annually saved a large sum from his
appropriations, aggregating during his incumbency and up to the close
of the present fiscal year nearly one-fifth of the entire amount
appropriated. These results have been accomplished by a conscientious
study of the real needs of the farmer and such a regard for economy
as the genuine farmer ought to appreciate, supplemented by a rigid
adherence to civil-service methods in a Department which should be
conducted in the interest of agriculture instead of partisan politics.
The Secretary reports that the value of our exports of farm products
during the last fiscal year amounted to $570,000,000, an increase of
$17,000,000 over those of the year immediately preceding. This statement
is not the less welcome because of the fact that, notwithstanding such
increase, the proportion of exported agricultural products to our total
exports of all descriptions fell off during the year. The benefits of
an increase in agricultural exports being assured, the decrease in its
proportion to our total exports is the more gratifying when we consider
that it is owing to the fact that such total exports for the year
increased more than $75,000,000.
The large and increasing exportation of our agricultural products
suggests the great usefulness of the organization lately established in
the Department for the purpose of giving to those engaged in farming
pursuits reliable information concerning the condition, needs, and
advantages of different foreign markets. Inasmuch as the success of the
farmer depends upon the advantageous sale of his products, and inasmuch
as foreign markets must largely be the destination of such products,
it is quite apparent that a knowledge of the conditions and wants that
affect those markets ought to result in sowing more intelligently and
reaping with a better promise of profit. Such information points out the
way to a prudent foresight in the selection and cultivation of crops and
to a release from the bondage of unreasoning monotony of production, a
glutted and depressed market, and constantly recurring unprofitable toil.
In my opinion the gratuitous distribution of seeds by the Department
as at present conducted ought to be discontinued. No one can read the
statement of the Secretary on this subject and doubt the extravagance
and questionable results of this practice. The professed friends of the
farmer, and certainly the farmers themselves, are naturally expected
to be willing to rid a Department devoted to the promotion of farming
interests of a feature which tends so much to its discredit.
The Weather Bureau, now attached to the Department of Agriculture, has
continued to extend its sphere of usefulness, and by an uninterrupted
improvement in the accuracy of its forecasts has greatly increased its
efficiency as an aid and protection to all whose occupations are related
to weather conditions.
Omitting further reference to the operations of the Department, I
commend the Secretary's report and the suggestions it contains to the
careful consideration of the Congress.
The progress made in civil-service reform furnishes a cause for the
utmost congratulation. It has survived the doubts of its friends as well
as the rancor of its enemies and has gained a permanent place among the
agencies destined to cleanse our politics and to improve, economize, and
elevate the public service.
There are now in the competitive classified service upward of 84,000
places, more than half of these having been included from time to time
since March 4, 1893. A most radical and sweeping extension was made by
Executive order dated the 6th day of May, 1896,[39] and if fourth-class
postmasterships are not included in the statement it may be said that
practically all positions contemplated by the civil-service law are now
classified. Abundant reasons exist for including these postmasterships,
based upon economy, improved service, and the peace and quiet of
neighborhoods. If, however, obstacles prevent such action at present,
I earnestly hope that Congress will, without increasing post-office
appropriations, so adjust them as to permit in proper cases a
consolidation of these post-offices, to the end that through this
process the result desired may to a limited extent be accomplished.
The civil-service rules as amended during the last year provide for a
sensible and uniform method of promotion, basing eligibility to better
positions upon demonstrated efficiency and faithfulness. The absence of
fixed rules on this subject has been an infirmity in the system more and
more apparent as its other benefits have been better appreciated.
The advantages of civil-service methods in their business aspects are
too well understood to require argument. Their application has become a
necessity to the executive work of the Government. But those who gain
positions through the operation of these methods should be made to
understand that the nonpartisan scheme through which they receive their
appointments demands from them by way of reciprocity nonpartisan and
faithful performance of duty under every Administration and cheerful
fidelity to every chief. While they should be encouraged to decently
exercise their rights of citizenship and to support through their
suffrages the political beliefs they honestly profess, the noisy,
pestilent, and partisan employee, who loves political turmoil and
contention or who renders lax and grudging service to an Administration
not representing his political views, should be promptly and fearlessly
dealt with in such a way as to furnish a warning to others who may be
likewise disposed.
The annual report of the Commissioners will be duly transmitted, and
I commend the important matter they have in charge to the careful
consideration of the Congress.
The Interstate Commerce Commission has during the last year supplied
abundant evidence of its usefulness and the importance of the work
committed to its charge.
Public transportation is a universal necessity, and the question of just
and reasonable charges therefor has become of vital importance not only
to shippers and carriers, but also to the vast multitude of producers
and consumers. The justice and equity of the principles embodied in the
existing law passed for the purpose of regulating these charges are
everywhere conceded, and there appears to be no question that the policy
thus entered upon has a permanent place in our legislation.
As the present statute when enacted was in the nature of the case more
or less tentative and experimental, it was hardly expected to supply a
complete and adequate system. While its wholesome effects are manifest
and have amply justified its enactment, it is evident that all desired
reforms in transportation methods have not been fully accomplished.
In view of the judicial interpretation which some provisions of this
statute have received and the defects disclosed by the efforts made for
its enforcement, its revision and amendment appear to be essential, to
the end that it may more effectually reach the evils designed to be
corrected. I hope the recommendations of the Commission upon this
subject will be promptly and favorably considered by the Congress.
I desire to recur to the statements elsewhere made concerning the
Government's receipts and expenditures for the purpose of venturing upon
some suggestions touching our present tariff law and its operation.
This statute took effect on the 28th day of August, 1894. Whatever may
be its shortcomings as a complete measure of tariff reform, it must be
conceded that it has opened the way to a freer and greater exchange of
commodities between us and other countries, and thus furnished a wider
market for our products and manufactures.
The only entire fiscal year during which this law has been in force
ended on the 30th day of June, 1896. In that year our imports increased
over those of the previous year more than $6,500,000, while the value
of the domestic products we exported and which found markets abroad was
nearly $70,000,000 more than during the preceding year.
Those who insist that the cost to our people of articles coming to
them from abroad for their needful use should only be increased through
tariff charges to an extent necessary to meet the expenses of the
Government, as well as those who claim that tariff charges may be laid
upon such articles beyond the necessities of Government revenue and with
the additional purpose of so increasing their price in our markets as
to give American manufacturers and producers better and more profitable
opportunities, must agree that our tariff laws are only primarily
justified as sources of revenue to enable the Government to meet the
necessary expenses of its maintenance. Considered as to its efficiency
in this aspect, the present law can by no means fall under just
condemnation. During the only complete fiscal year of its operation it
has yielded nearly $8,000,000 more revenue than was received from tariff
duties in the preceding year. There was, nevertheless, a deficit between
our receipts and expenditures of a little more than $25,000,000. This,
however, was not unexpected.
The situation was such in December last, seven months before the close
of the fiscal year, that the Secretary of the Treasury foretold a
deficiency of $17,000,000. The great and increasing apprehension and
timidity in business circles and the depression in all activities
intervening since that time, resulting from causes perfectly well
understood and entirely disconnected with our tariff law or its
operation, seriously checked the imports we would have otherwise
received and readily account for the difference between this estimate
of the Secretary and the actual deficiency, as well as for a continued
deficit. Indeed, it must be confessed that we could hardly have had a
more unfavorable period than the last two years for the collection of
tariff revenue. We can not reasonably hope that our recuperation from
this business depression will be sudden, but it has already set in with
a promise of acceleration and continuance.
I believe our present tariff law, if allowed a fair opportunity, will
in the near future yield a revenue which, with reasonably economical
expenditures, will overcome all deficiencies. In the meantime no deficit
that has occurred or may occur need excite or disturb us. To meet any
such deficit we have in the Treasury in addition to a gold reserve of
one hundred millions a surplus of more than $128,000,000 applicable
to the payment of the expenses of the Government, and which must,
unless expended for that purpose, remain a useless hoard, or, if not
extravagantly wasted, must in any event be perverted from the purpose of
its exaction from our people. The payment, therefore, of any deficiency
in the revenue from this fund is nothing more than its proper and
legitimate use. The Government thus applying a surplus fortunately in
its Treasury to the payment of expenses not met by its current revenues
is not at all to be likened to a man living beyond his income and thus
incurring debt or encroaching on his principal.
It is not one of the functions of our Government to accumulate
and make additions to a fund not needed for immediate expenditure.
With individuals it is the chief object of struggle and effort. The
application of an accumulated fund by the Government to the payment of
its running expenses is a duty. An individual living beyond his income
and embarrassing himself with debt or drawing upon his accumulated fund
of principal is either unfortunate or improvident. The distinction is
between a government charged with the duty of expending for the benefit
of the people and for proper purposes all the money it receives from any
source, and the individual, who is expected to manifest a natural desire
to avoid debt or to accumulate as much as possible and to live within
the income derived from such accumulations, to the end that they may be
increased or at least remain unimpaired for the future use and enjoyment
of himself or the objects of his love and affection who may survive him.
It is immeasurably better to appropriate our surplus to the payment
of justifiable expenses than to allow it to become an invitation to
reckless appropriations and extravagant expenditures.
I suppose it will not be denied that under the present law our people
obtain the necessaries of a comfortable existence at a cheaper rate
than formerly. This is a matter of supreme importance, since it is the
palpable duty of every just government to make the burdens of taxation
as light as possible. The people should not be required to relinquish
this privilege of cheaper living except under the stress of their
Government's necessity made plainly manifest.
This reference to the condition and prospects of our revenues naturally
suggests an allusion to the weakness and vices of our financial methods.
They have been frequently pressed upon the attention of Congress in
previous Executive communications and the inevitable danger of their
continued toleration pointed out. Without now repeating these details,
I can not refrain from again earnestly presenting the necessity of the
prompt reform of a system opposed to every rule of sound finance and
shown by experience to be fraught with the gravest peril and perplexity.
The terrible Civil War, which shook the foundations of our Government
more than thirty years ago, brought in its train the destruction of
property, the wasting of our country's substance, and the estrangement
of brethren. These are now past and forgotten. Even the distressing
loss of life the conflict entailed is but a sacred memory which fosters
patriotic sentiment and keeps alive a tender regard for those who
nobly died. And yet there remains with us to-day in full strength and
activity, as an incident of that tremendous struggle, a feature of its
financial necessities not only unsuited to our present circumstances,
but manifestly a disturbing menace to business security and an
ever-present agent of monetary distress.
Because we may be enjoying a temporary relief from its depressing
influence, this should not lull us into a false security nor lead us to
forget the suddenness of past visitations.
I am more convinced than ever that we can have no assured financial
peace and safety until the Government currency obligations upon which
gold may be demanded from the Treasury are withdrawn from circulation
and canceled. This might be done, as has been heretofore recommended,
by their exchange for long-term bonds bearing a low rate of interest or
by their redemption with the proceeds of such bonds. Even if only the
United States notes known as greenbacks were thus retired it is probable
that the Treasury notes issued in payment of silver purchases under the
act of July 14, 1890, now paid in gold when demanded, would not create
much disturbance, as they might from time to time, when received in the
Treasury by redemption in gold or otherwise, be gradually and prudently
replaced by silver coin.
This plan of issuing bonds for the purpose of redemption certainly
appears to be the most effective and direct path to the needed reform.
In default of this, however, it would be a step in the right direction
if currency obligations redeemable in gold whenever so redeemed should
be canceled instead of being reissued. This operation would be a slow
remedy, but it would improve present conditions.
National banks should redeem their own notes. They should be allowed to
issue circulation to the par value of bonds deposited as security for
its redemption and the tax on their circulation should be reduced to
one-fourth of 1 per cent.
In considering projects for the retirement of United States notes and
Treasury notes issued under the law of 1890, I am of the opinion that we
have placed too much stress upon the danger of contracting the currency
and have calculated too little upon the gold that would be added to our
circulation if invited to us by better and safer financial methods. It
is not so much a contraction of our currency that should be avoided as
its unequal distribution.
This might be obviated and any fear of harmful contraction at the same
time removed by allowing the organization of smaller banks and in less
populous communities than are now permitted, and also authorizing
existing banks to establish branches in small communities under proper
restrictions.
The entire case may be presented by the statement that the day of
sensible and sound financial methods will not dawn upon us until our
Government abandons the banking business and the accumulation of funds
and confines its monetary operations to the receipt of the money
contributed by the people for its support and to the expenditure of such
money for the people's benefit.
Our business interests and all good citizens long for rest from feverish
agitation and the inauguration by the Government of a reformed financial
policy which will encourage enterprise and make certain the rewards of
labor and industry.
Another topic in which our people rightfully take a deep interest
may be here briefly considered. I refer to the existence of trusts and
other huge aggregations of capital the object of which is to secure the
monopoly of some particular branch of trade, industry, or commerce and
to stifle wholesome competition. When these are defended, it is usually
on the ground that though they increase profits they also reduce prices,
and thus may benefit the public. It must be remembered, however, that
a reduction of prices to the people is not one of the real objects
of these organizations, nor is their tendency necessarily in that
direction. If it occurs in a particular case it is only because it
accords with the purposes or interests of those managing the scheme.
Such occasional results fall far short of compensating the palpable
evils charged to the account of trusts and monopolies. Their tendency
is to crush out individual independence and to hinder or prevent the
free use of human faculties and the full development of human character.
Through them the farmer, the artisan, and the small trader is in danger
of dislodgment from the proud position of being his own master, watchful
of all that touches his country's prosperity, in which he has an
individual lot, and interested in all that affects the advantages of
business of which he is a factor, to be relegated to the level of a mere
appurtenance to a great machine, with little free will, with no duty but
that of passive obedience, and with little hope or opportunity of rising
in the scale of responsible and helpful citizenship.
To the instinctive belief that such is the inevitable trend of trusts
and monopolies is due the widespread and deep-seated popular aversion in
which they are held and the not unreasonable insistence that, whatever
may be their incidental economic advantages, their general effect upon
personal character, prospects, and usefulness can not be otherwise than
injurious.
Though Congress has attempted to deal with this matter by legislation,
the laws passed for that purpose thus far have proved ineffective, not
because of any lack of disposition or attempt to enforce them, but
simply because the laws themselves as interpreted by the courts do not
reach the difficulty. If the insufficiencies of existing laws can be
remedied by further legislation, it should be done. The fact must be
recognized, however, that all Federal legislation on this subject may
fall short of its purpose because of inherent obstacles and also because
of the complex character of our governmental system, which, while making
the Federal authority supreme within its sphere, has carefully limited
that sphere by metes and bounds that can not be transgressed. The
decision of our highest court on this precise question renders it quite
doubtful whether the evils of trusts and monopolies can be adequately
treated through Federal action unless they seek directly and purposely
to include in their objects transportation or intercourse between States
or between the United States and foreign countries.
It does not follow, however, that this is the limit of the remedy that
may be applied. Even though it may be found that Federal authority is
not broad enough to fully reach the case, there can be no doubt of the
power of the several States to act effectively in the premises, and
there should be no reason to doubt their willingness to judiciously
exercise such power.
In concluding this communication its last words shall be an appeal to
the Congress for the most rigid economy in the expenditure of the money
it holds in trust for the people. The way to perplexing extravagance
is easy, but a return to frugality is difficult. When, however, it is
considered that those who bear the burdens of taxation have no guaranty
of honest care save in the fidelity of their public servants, the duty
of all possible retrenchment is plainly manifest.
When our differences are forgotten and our contests of political
opinion are no longer remembered, nothing in the retrospect of our
public service will be as fortunate and comforting as the recollection
of official duty well performed and the memory of a constant devotion to
the interests of our confiding fellow-countrymen.
GROVER CLEVELAND.
[Footnote 36: See p. 624.]
[Footnote 37: See pp. 450-451.]
[Footnote 38: Of the second class 52,348,297 was county-free matter.]
[Footnote 39: See pp. 701-711.]
SPECIAL MESSAGES.
EXECUTIVE MANSION, _Washington, January 5, 1897_.
_To the Senate_:
I transmit herewith, in response to a resolution of the Senate of the
22d ultimo, a report from the Secretary of State, accompanied by copies
of correspondence concerning the death of Charles Govin, a citizen of
the United States, in the island of Cuba.
GROVER CLEVELAND.
EXECUTIVE MANSION, _Washington, January 8, 1897_.
_To the House of Representatives_:
I transmit herewith, in response to the resolution of the House of
Representatives of May 8, 1896, requesting information as to what had
been done by the Department of State to carry out the provision in the
act of March 2, 1895, making appropriations for the Department of
Agriculture for the year 1896, as to negotiations with Great Britain to
secure the abrogation or modification of the regulations requiring the
slaughter of cattle from the United States at the port of entry, a
report from the Secretary of State, with accompanying papers.
GROVER CLEVELAND.
EXECUTIVE MANSION, _Washington, January 8, 1897_.
_To the House of Representatives_:
I transmit herewith the report of the Secretary of State in response to
the resolution of the House of Representatives of June 5, 1896, calling
for information concerning the changes made in the force of his
Department since the 4th day of March, 1893.
This report has been in my hands since the 9th day of December, 1896,
and its transmission to the House of Representatives has been delayed by
my inadvertence.
GROVER CLEVELAND.
EXECUTIVE MANSION, _January 11, 1897_.
_To the Senate_:
I transmit herewith a treaty for the arbitration of all matters in
difference between the United States and Great Britain.
The provisions of the treaty are the result of long and patient
deliberation and represent concessions made by each party for the sake
of agreement upon the general scheme.
Though the result reached may not meet the views of the advocates of
immediate, unlimited, and irrevocable arbitration of all international
controversies, it is nevertheless confidently believed that the treaty
can not fail to be everywhere recognized as making a long step in the
right direction and as embodying a practical working plan by which
disputes between the two countries will reach a peaceful adjustment as
matter of course and in ordinary routine.
In the initiation of such an important movement it must be expected that
some of its features will assume a tentative character looking to a
further advance, and yet it is apparent that the treaty which has been
formulated not only makes war between the parties to it a remote
possibility, but precludes those fears and rumors of war which of
themselves too often assume the proportions of national disaster.
It is eminently fitting as well as fortunate that the attempts to
accomplish results so beneficent should be initiated by kindred peoples,
speaking the same tongue and joined together by all the ties of common
traditions, common institutions, and common aspirations. The experiment
of substituting civilized methods for brute force as the means of
settling international questions of right will thus be tried under the
happiest auspices. Its success ought not to be doubtful, and the fact
that its ultimate ensuing benefits are not likely to be limited to the
two countries immediately concerned should cause it to be promoted all
the more eagerly. The examples set and the lesson furnished by the
successful operation of this treaty are sure to be felt and taken to
heart sooner or later by other nations, and will thus mark the beginning
of a new epoch in civilization.
Profoundly impressed as I am, therefore, by the promise of transcendent
good which this treaty affords, I do not hesitate to accompany its
transmission with an expression of my earnest hope that it may commend
itself to the favorable consideration of the Senate.
GROVER CLEVELAND.
EXECUTIVE MANSION, _January 18, 1897_.
_To the Senate and House of Representatives_:
I transmit herewith the report of Messrs. James B. Angell, of Michigan,
John E. Russell, of Massachusetts, and Lyman E. Cooley, of Illinois, who
were appointed commissioners under the authority of a law passed March
2, 1895, to make inquiry and report, after conference with such similar
commissioners as might be appointed on behalf of Great Britain or the
Dominion of Canada, concerning the feasibility of the construction of
such canals as will enable vessels engaged in ocean commerce to pass
between the Great Lakes and the Atlantic Ocean, and the most convenient
location and probable cost of such canals, together with other facts and
information in said act specified relating to their construction and
use.
The commissioners have prosecuted the work assigned them with great zeal
and intelligence, resulting in the collection of a mass of information
embodied in their report and its accompanying exhibits which is of great
importance and interest as related to the project subjected to their
examination.
The advantages of direct and unbroken water transportation of the
products of our Western States and Territories from convenient points of
shipment to our seaboard ports are plainly palpable. The report of the
commissioners contains, in my opinion, demonstration of the feasibility
of securing such transportation, and gives ground for the anticipation
that better and more uninterrupted commerce, through the plan suggested,
between the great West and foreign ports, with the increase of national
prosperity which must follow in its train, will not long escape American
enterprise and activity.
It will be observed that the report of the commissioners, though as
comprehensive as the time and facilities at their disposal permitted,
does not definitely deal with the cost of the work they were called upon
to consider and omits some of the other details related to it. Thus far
they have labored without compensation, and a part of the small sum
appropriated for the payment of their expenses still remains unexpended.
I suggest to the Congress the propriety of making economical provision
for such further prosecution of their work as will more fully develop
the information necessary to an exact and complete understanding of this
interesting and important subject.
GROVER CLEVELAND.
EXECUTIVE MANSION, _Washington, January 22, 1897_.
_To the Senate of the United States_:
In response to the resolution of the Senate of December 15, 1896,
relating to Cuban affairs, I transmit a report from the Secretary of
State, submitting a list of the claims filed in the Department of State
by citizens of the United States against Spain arising out of the
insurrection existing in the island of Cuba, and the accompanying
correspondence relating to the vessel called the _Competitor_ and
the persons claiming American citizenship captured thereon, which I deem
it not incompatible with the public interests to communicate.
GROVER CLEVELAND.
EXECUTIVE MANSION, _Washington, January 25, 1897_.
_To the Senate of the United States_:
I transmit herewith, in response to the Senate resolution of December
21, 1896, addressed to the Secretary of State, a report of that officer
covering a list of persons claiming to be citizens of the United States
who have been arrested on the island of Cuba since February 24, 1895, to
the present time.
GROVER CLEVELAND.
EXECUTIVE MANSION, _Washington, February 1, 1897_.
_To the Senate_:
I transmit herewith, in response to a resolution of the Senate of the
6th ultimo, a report from the Secretary of State, accompanied by copies
of correspondence concerning the arrest, imprisonment, trial, and
condemnation to perpetual imprisonment in chains of Jules Sanguily, a
citizen of the United States, by the authorities of Spain in Cuba.
GROVER CLEVELAND.
EXECUTIVE MANSION, _February 5, 1897_.
_To the Senate and House of Representatives_:
The World's Columbian Commission has delivered to me certain documents
and exhibits which they desire should constitute the final report
required by section 12 of the act of Congress passed April 25, 1890,
providing for the celebration of the four hundredth anniversary of the
discovery of America and the holding of an international exhibition in
the city of Chicago.
The documents referred to embrace the reports of the president and
secretary of the commission and a report of the executive committee on
awards, with exhibits relating to the same. They are contained in five
boxes of considerable size, which, instead of actually transmitting with
this communication, I have deposited in the State Department subject to
the action and direction of the Congress.
I am informed that the director-general of the exposition has made a
report directly to the Congress, and that no report of the lady managers
has yet been made.
The selection of such part of the material mentioned as may be
considered necessary to constitute a final exhibit of the action of
the commission and the results of the exposition is submitted to the
discretion of Congress.
GROVER CLEVELAND.
EXECUTIVE MANSION, _Washington, February 8, 1897_.
_To the Senate and House of Representatives_:
I transmit herewith a communication from the Secretary of State and
accompanying reports from diplomatic and consular officers of the United
States on the passport regulations of foreign countries. In view of the
evident value of the information contained in these reports, especially
to American citizens going abroad and sojourning or traveling in foreign
lands, I approve the recommendation of the Secretary that Congress
authorize the printing of a special edition of 3,000 copies of the work,
to be distributed by the Department of State as indicated in the
Secretary's report.
GROVER CLEVELAND.
EXECUTIVE MANSION, _February 8, 1897_.
_To the Senate and House of Representatives_:
I herewith submit the thirteenth annual report of the Civil Service
Commission, containing a detailed statement of its important work and
exhibiting the present condition of the classified service of the
Government.
GROVER CLEVELAND.
EXECUTIVE MANSION, _February 10, 1897_.
_To the Senate of the United States_:
In compliance with a resolution of the Senate of the 9th instant, the
House of Representatives concurring, I return herewith Senate bill No.
3328, entitled "An act to amend an act entitled 'An act to repeal the
timber-culture laws, and for other purposes.'"
GROVER CLEVELAND.
EXECUTIVE MANSION, _Washington, February 11, 1897_.
_To the Senate of the United States_:
In response to the resolution of the Senate of February 4, 1897, I
transmit a report from the Secretary of State, submitting copies of
correspondence relative to the arrest and detention of Gaspar A.
Betancourt, a citizen of the United States, by the Spanish authorities
in Cuba.
GROVER CLEVELAND.
EXECUTIVE MANSION, _Washington, February 11, 1897_.
_To the Senate of the United States_:
In response to the resolution of the Senate of February 2, 1897, I
transmit a report from the Secretary of State, relative to the killing
of Segundo N. Lopez, son of M.F. Lopez, at Sagua la Grande, in Cuba.
GROVER CLEVELAND.
EXECUTIVE MANSION, _Washington, February 20, 1897_.
_To the Senate_:
I transmit herewith, in answer to the resolution of the Senate of the
17th instant, a report from the Secretary of State, touching the reply
of the British Government in regard to the failure of the negotiations
of the Paris Tribunal to protect the fur-seal herd of Alaska.
GROVER CLEVELAND.
EXECUTIVE MANSION, _Washington, February 20, 1897_.
_To the Senate_:
I transmit herewith, in answer to the resolution of the Senate of the
15th instant, a report from the Secretary of State, accompanied by
copies of correspondence with the German Government in reference to
American insurance companies.
GROVER CLEVELAND.
EXECUTIVE MANSION, _Washington, February 23, 1897_.
_To the Senate_:
I transmit herewith, in response to the resolution of the Senate of
February 6, 1897, a report from the Secretary of State, in regard to the
persons claiming American citizenship captured on board of the
_Competitor_.
GROVER CLEVELAND.
EXECUTIVE MANSION, _Washington, February 24, 1897_.
_To the Congress_:
I transmit herewith a communication from the Secretary of State,
covering the report of the joint commission on behalf of the United
States and Great Britain, dated December 31, 1896, relative to the
preservation of the fisheries in waters contiguous to the United States
and Canada, as provided by the joint agreement between the United States
and Great Britain dated December 6, 1892.
GROVER CLEVELAND.
EXECUTIVE MANSION, _Washington, February 25, 1897_.
_To the Senate and House of Representatives_:
I transmit herewith, for the information of the Congress, a
communication from the Secretary of State, covering the report of the
Director of the Bureau of the American Republics for the year 1896.
GROVER CLEVELAND.
EXECUTIVE MANSION, _Washington, February 26, 1897_.
_To the House of Representatives_:
I transmit herewith a communication from the Secretary of State,
accompanying the annual reports of the consuls of the United States
upon foreign industries and commerce. In view of the value of these
reports to the business interests throughout the country, I indorse the
recommendation of the Secretary of State that Congress authorize the
printing of a special edition of 10,000 copies of the general summary
entitled Review of the World's Commerce, and of 5,000 copies of
Commercial Relations (including this summary), to enable the Department
of State to meet the demand for such information.
GROVER CLEVELAND.
EXECUTIVE MANSION, _March 1, 1897_.
_To the Congress_:
I transmit herewith the report of the board of lady managers of the
World's Columbian Commission.
GROVER CLEVELAND.
EXECUTIVE MANSION, _Washington, March 1, 1897_.
_To the Senate_:
In response to the resolution of the Senate of the 24th ultimo, I
transmit herewith a report from the Secretary of State, covering copies
of the correspondence and reports of the consul-general of the United
States at Havana relating to all American citizens now in prison in the
island of Cuba not previously reported on.
GROVER CLEVELAND.
EXECUTIVE MANSION, _Washington, March 2, 1897_.
_To the Senate_:
I transmit herewith, in response to the resolution of the Senate of
February 24, 1897, a report from the Secretary of State, in relation to
the claim of M.A. Cheek against the Siamese Government, with
accompanying papers.
GROVER CLEVELAND.
EXECUTIVE MANSION, _Washington, March 2, 1897_.
_To the Senate_:
I herewith transmit a report of the Secretary of State upon a resolution
of the Senate relating to the arrest, imprisonment, and death of Dr.
Ricardo Ruiz in the jail of Guanabacoa, on the island of Cuba. Agreeing
with the suggestion of the Secretary, I have not thought it compatible
with the public interest that the correspondence referred to in the
resolution should be communicated pending the public and exhaustive
investigation about to be instituted.
Though it seems to be clear that the consul-general should have
professional aid in such investigation, that matter, together with the
selection of the particular persons to act with him, properly devolves
upon my successor in office.
GROVER CLEVELAND.
EXECUTIVE MANSION, _Washington, March 3, 1897_.
_To the Senate_:
I transmit herewith, in reply to the resolution of the Senate of January
23, 1897, a report from the Secretary of State, accompanied by copies of
the correspondence therein requested, relating to the Nicaraguan Canal
or the Maritime Canal Company of Nicaragua, since 1887.
GROVER CLEVELAND.
VETO MESSAGES.
EXECUTIVE MANSION, _January 14, 1897_.
_To the House of Representatives_:
I return herewith without my approval House bill No. 9469, entitled
"An act to constitute a new division of the eastern judicial district
of Texas, and to provide for the holding of terms of court at Beaumont,
Tex., and for the appointment of a clerk for said court."
It appears that terms of court are now held at four different places
within the eastern judicial district of Texas and that parties having
business in the courts are not seriously inconvenienced under present
arrangements.
Both the Federal judge and district attorney in this district express
themselves in opposition to the bill as unnecessary and an interruption
to the transaction of the large volume of business now pending and
constantly coming before the court.
I have before me certificates of the clerks of the present divisions of
the courts showing that during the last five years the counties which
it is proposed shall constitute the new division have contributed but
forty-two cases to the calendars of the court.
Conclusive proof is also before me that the additional terms of court
provided for in this bill would so interfere with the terms already
appointed in the existing divisions that the proper administration of
the civil as well as the criminal law would be impracticable.
The criminal docket of the terms held at Paris is so large that under
present arrangements and with the utmost industry trials can not now be
as promptly disposed of as the ends of justice require. This condition
would be further aggravated if terms of the court should be held at
Beaumont on the dates proposed in this bill, since they are fixed at
such times as to necessarily curtail the period now devoted to the
Paris terms.
On the grounds stated and because I am unable to discover how the public
interests can possibly be promoted by the proposed legislation I am
constrained to withhold my approval of the bill under consideration.
GROVER CLEVELAND.
EXECUTIVE MANSION, _February 22, 1897_.
_To the House of Representatives_:
I return herewith without my approval House bill No. 2189, entitled
"An act granting a pension to Mrs. Mary A. Freeman."
A former husband of the beneficiary, named Andrew V. Pritchard, did
service in the Mexican War, and on July 22, 1847, died of disease
contracted in such service. Thereupon the beneficiary named in this bill
was pensioned as his widow. She continued to receive this pension until
1852, when she married John Freeman, through which she of course lost
her pensionable status. Two minor children of the soldier were, however,
placed on the pension roll in her stead, and their pension was paid to
them until the youngest became 16 years of age, in 1863.
John Freeman died in December, 1871, the beneficiary having been his
wife for almost twenty years. It is now proposed to restore her to the
pension roll as the widow of her former husband, the Mexican soldier,
who died nearly fifty years ago, and notwithstanding the fact that less
than five years after his death she relinquished her right to a pension
and surrendered her widowhood to become the wife of another husband,
with whom she lived for many years.
I am not willing, even by inaction, to be charged with acquiescence in
what appears to be such an entire departure from the principle, as well
as sentiment, connected with reasonable pension legislation.
GROVER CLEVELAND.
EXECUTIVE MANSION, _February 22, 1897_.
_To the Senate_:
I return herewith without approval Senate bill No. 1323, entitled "An
act granting a pension to Maria Somerlat, widow of Valentine Somerlat."
This beneficiary, under the name of Maria Somerlat, was pensioned in
1867 as the widow of Valentine Somerlat, a volunteer soldier, dating
from his death, in 1864. She continued to draw the pension allowed
her as such widow until 1881, when she married one Hiram Smith.
Subsequently, but at what time does not appear, she was divorced from
Smith in a suit that seems to have been begun by him, but in which
she interposed a cross bill and obtained judgment in her favor.
Notwithstanding her remarriage, through which she ceased to be the widow
of the dead soldier, it is proposed to pension her again on account of
his death.
The rule governing the operation of general pension laws which forfeits
a widow's pension on her remarriage seems so reasonable and just and
its relaxation must necessarily lead to such a departure from just
principles and to such vexatious pension administration that I am
convinced it ought to be strictly maintained.
I hope I may be permitted to call the attention of the Senate to the
increasing latitude clearly discernible in special pension legislation.
It has seemed to me so useless to attempt to stem the tide of this
legislation by Executive interference that I have contented myself with
nonacquiescence in numerous cases where I could not approve.
There have been already presented to me for Executive action during the
present session of the Congress 206 special pension bills, of which I
have actually examined 115. The entire number of such bills that have
become laws during the four sessions of the Congress since March 4,
1893, is 391. Some of those presented at the present session are not
based upon the least pretext that the death or disability involved is
related to army service, while in numerous other cases it is extremely
difficult to satisfactorily discover such relationship.
There is one feature of this legislation which I am sure deserves
attention. I refer to the great number of special bills passed for
the purpose of increasing the pensions of those already on the rolls.
Of the 115 special pension bills which I have examined since the
beginning of the present session of the Congress, 58 granted or restored
pensions and 57 increased those already existing, and the appropriation
of money necessary to meet these increases exceeds considerably the
amount required to pay the original pensions granted or restored by the
remaining 58 bills.
I can not discover that these increases are regulated by any rule
or principle, and when we remember that there are nearly a million
pensioners on our rolls and consider the importunity for such increase
that must follow the precedents already made, the relation of the
subject to a justifiable increase of our national revenues can not
escape attention.
GROVER CLEVELAND.
EXECUTIVE MANSION, _February 22, 1897_.
_To the House of Representatives_:
I return herewith without my approval House bill No. 6902, entitled
"An act granting a pension to Mrs. Mary A. Viel."
This beneficiary was married in 1862 to Major W.D. Sanger, then in the
volunteer military service. He died in 1872, never having made any
application for pension. His widow made no application for pension, but
within three years after her husband's death, and in 1875, became the
wife of Paul Viel. Eight years thereafter he died, leaving her his
widow, and it is now proposed to pension her as the widow of the
soldier, Major Sanger, though she long ago by her own deliberate act
surrendered that title and all its incidents.
There is a further objection to granting this pension. I do not find
that any claim is made that the death of the soldier, who was the
beneficiary's first husband, was at all attributable to his army
service. Neither he nor his widow, while she remained such, presented
any such claim, nor is it found in reports of the committees in the
Senate or House to whom the bill under consideration was referred.
On the contrary, the Senate Committee on Pensions in their report
distinctly state that "there is no proof that soldier contracted disease
while in the service or that he died of pensionable disabilities."
GROVER CLEVELAND.
EXECUTIVE MANSION, _March i, 1897_.
_To the Senate_:
I return herewith without approval Senate bill No. 719, entitled "An act
to restore a pension to Harriet M. Knowlton."
Major William Knowlton, a most worthy volunteer soldier, died of wounds
received in battle on the 20th day of September, 1864.
In 1865 his widow, the beneficiary named in this bill, was pensioned at
the rate of $25 a month, commencing on the day of her husband's death,
with an additional allowance for four minor children dating from July,
1866.
She continued to receive this pension and allowance until November,
1867, when she married Albin P. Stinchfield.
Thereupon her name was dropped from the pension roll, she having by
her remarriage lost her pensionable condition, and her children were
pensioned at a small monthly rate from the date of their mother's
remarriage until June 1, 1880, when the youngest became 16 years of age.
The beneficiary, after living with her second husband about twenty-two
years, secured a divorce from him in the year 1889, and it is now
proposed to pension the divorced wife as the widow of her deceased
soldier husband at the rate she received while she was actually his
widow, thirty years ago.
Her pensionable relation to the Government terminated with her
remarriage, and her divorce from her second husband could not upon any
ground of principle restore it. A departure from this rule, even in aid
of cases of hardship, can not fail to establish precedents inviting the
abandonment of reasonable and justifiable pension theories.
GROVER CLEVELAND.
EXECUTIVE MANSION, _March 1, 1897_.
_To the House of Representatives_:
I herewith return without approval House bill No. 1299, entitled "An act
to pension Harriet Woodbury, of Windsor, Vt."
The beneficiary named in this bill was the wife of Aaron G. Firman at
the time of his enlistment in 1863. He died October 2, 1864, and the
beneficiary, as his widow, was pensioned in 1865, from the day of her
soldier husband's death.
She continued to receive the pension allowed to her as such widow until
July 14, 1866, when she married Samuel H. Woodbury. She was thereupon
dropped from the pension roll pursuant to law, and in 1868 the minor son
of the soldier was allowed a pension of $8 a month, commencing at the
date of the remarriage of his mother. This pension was increased to $10
a month in 1873, from July 25, 1866, and was continued until 1880, when
the minor child reached the age of 16 years.
On July 26, 1886, twenty years after the beneficiary ceased to be the
widow of the soldier Aaron G. Firman and became the wife of the civilian
Samuel H. Woodbury, he died and she became his widow.
It is now proposed by this bill to pension her again as the widow of the
deceased soldier, notwithstanding her voluntary abandonment of that
relation to become the wife of another more than thirty years ago.
No feature of our pension laws is so satisfactory and just as a fair
allowance to the widows of our soldiers who have died from causes
attributable to their army service. When, however, such a beneficiary
by remarriage surrenders her soldier widowhood and turns away from its
tender and patriotic associations to assume again the relation and
allegiance of wife to another husband, when she discards the soldier's
name and in every way terminates her pensionable relationship to the
Government, I am unable to discover any principle which justifies her
restoration to that relationship upon the death of her second husband.
No one can be insensible to the sad plight of a widow in needy
condition, but our pension laws should deal with soldiers' widows. I
understand that only the existence of this relationship to a deceased
soldier creates through him the Government's duty and justifies the
application of public money to the relief of such widows.
GROVER CLEVELAND.
EXECUTIVE MANSION, _March 2, 1897_.
_To the House of Representatives_:
I herewith return without approval House bill No. 7864, entitled "An act
to amend the immigration laws of the United States."
By the first section of this bill it is proposed to amend section 1 of
the act of March 3, 1891, relating to immigration by adding to the
classes of aliens thereby excluded from admission to the United States
the following:
All persons physically capable and over 16 years of age who can not read
and write the English language or some other language; but a person not
so able to read and write who is over 50 years of age and is the parent
or grandparent of a qualified immigrant over 21 years of age and capable
of supporting such parent or grandparent may accompany such immigrant,
or such a parent or grandparent may be sent for and come to join the
family of a child or grandchild over 21 years of age similarly qualified
and capable, and a wife or minor child not so able to read and write may
accompany or be sent for and come and join the husband or parent
similarly qualified and capable.
A radical departure from our national policy relating to immigration is
here presented. Heretofore we have welcomed all who came to us from
other lands except those whose moral or physical condition or history
threatened danger to our national welfare and safety. Relying upon the
zealous watchfulness of our people to prevent injury to our political
and social fabric, we have encouraged those coming from foreign
countries to cast their lot with us and join in the development of our
vast domain, securing in return a share in the blessings of American
citizenship.
A century's stupendous growth, largely due to the assimilation and
thrift of millions of sturdy and patriotic adopted citizens, attests the
success of this generous and free-handed policy which, while guarding
the people's interests, exacts from our immigrants only physical and
moral soundness and a willingness and ability to work.
A contemplation of the grand results of this policy can not fail to
arouse a sentiment in its defense, for however it might have been
regarded as an original proposition and viewed as an experiment its
accomplishments are such that if it is to be uprooted at this late day
its disadvantages should be plainly apparent and the substitute adopted
should be just and adequate, free from uncertainties, and guarded
against difficult or oppressive administration.
It is not claimed, I believe, that the time has come for the further
restriction of immigration on the ground that an excess of population
overcrowds our land.
It is said, however, that the quality of recent immigration is
undesirable. The time is quite within recent memory when the same thing
was said of immigrants who, with their descendants, are now numbered
among our best citizens.
It is said that too many immigrants settle in our cities, thus
dangerously increasing their idle and vicious population. This is
certainly a disadvantage. It can not be shown, however, that it affects
all our cities, nor that it is permanent; nor does it appear that this
condition where it exists demands as its remedy the reversal of our
present immigration policy.
The claim is also made that the influx of foreign laborers deprives of
the opportunity to work those who are better entitled than they to the
privilege of earning their livelihood by daily toil. An unfortunate
condition is certainly presented when any who are willing to labor are
unemployed, but so far as this condition now exists among our people it
must be conceded to be a result of phenomenal business depression and
the stagnation of all enterprises in which labor is a factor. With the
advent of settled and wholesome financial and economic governmental
policies and consequent encouragement to the activity of capital the
misfortunes of unemployed labor should, to a great extent at least, be
remedied. If it continues, its natural consequences must be to check the
further immigration to our cities of foreign laborers and to deplete the
ranks of those already there. In the meantime those most willing and
best entitled ought to be able to secure the advantages of such work as
there is to do.
It is proposed by the bill under consideration to meet the alleged
difficulties of the situation by establishing an educational test by
which the right of a foreigner to make his home with us shall be
determined. Its general scheme is to prohibit from admission to our
country all immigrants "physically capable and over 16 years of age who
can not read and write the English language or some other language," and
it is provided that this test shall be applied by requiring immigrants
seeking admission to read and afterwards to write not less than twenty
nor more than twenty-five words of the Constitution of the United States
in some language, and that any immigrant failing in this shall not be
admitted, but shall be returned to the country from whence he came at
the expense of the steamship or railroad company which brought him.
The best reason that could be given for this radical restriction of
immigration is the necessity of protecting our population against
degeneration and saving our national peace and quiet from imported
turbulence and disorder.
I can not believe that we would be protected against these evils by
limiting immigration to those who can read and write in any language
twenty-five words of our Constitution. In my opinion, it is infinitely
more safe to admit a hundred thousand immigrants who, though unable to
read and write, seek among us only a home and opportunity to work than
to admit one of those unruly agitators and enemies of governmental
control who can not only read and write, but delights in arousing by
inflammatory speech the illiterate and peacefully inclined to discontent
and tumult. Violence and disorder do not originate with illiterate
laborers. They are, rather, the victims of the educated agitator. The
ability to read and write, as required in this bill, in and of itself
affords, in my opinion, a misleading test of contented industry and
supplies unsatisfactory evidence of desirable citizenship or a proper
apprehension of the benefits of our institutions. If any particular
element of our illiterate immigration is to be feared for other causes
than illiteracy, these causes should be dealt with directly, instead of
making illiteracy the pretext for exclusion, to the detriment of other
illiterate immigrants against whom the real cause of complaint can not
be alleged.
The provisions intended to rid that part of the proposed legislation
already referred to from obvious hardship appears to me to be indefinite
and inadequate.
A parent, grandparent, wife, or minor child of a qualified immigrant,
though unable to read and write, may accompany the immigrant or be sent
for to join his family, provided the immigrant is capable of supporting
such relative. These exceptions to the general rule of exclusion
contained in the bill were made to prevent the separation of families,
and yet neither brothers nor sisters are provided for. In order that
relatives who are provided for may be reunited, those still in foreign
lands must be sent for to join the immigrant here. What formality is
necessary to constitute this prerequisite, and how are the facts of
relationship and that the relative is sent for to be established?
Are the illiterate relatives of immigrants who have come here under
prior laws entitled to the advantage of these exceptions? A husband who
can read and write and who determines to abandon his illiterate wife
abroad will find here under this law an absolutely safe retreat. The
illiterate relatives mentioned must not only be sent for, but such
immigrant must be capable of supporting them when they arrive. This
requirement proceeds upon the assumption that the foreign relatives
coming here are in every case, by reason of poverty, liable to become
a public charge unless the immigrant is capable of their support. The
contrary is very often true. And yet if unable to read and write, though
quite able and willing to support themselves and their relatives here
besides, they could not be admitted under the provisions of this bill
if the immigrant was impoverished, though the aid of his fortunate but
illiterate relative might be the means of saving him from pauperism.
The fourth section of this bill provides--
That it shall be unlawful for any male alien who has not in good faith
made his declaration before the proper court of his intention to become
a citizen of the United States to be employed on any public works of the
United States or to come regularly or habitually into the United States
by land or water for the purpose of engaging in any mechanical trade or
manual labor for wages or salary, returning from time to time to a
foreign country.
The fifth section provides--
That it shall be unlawful for any person, partnership, company, or
corporation knowingly to employ any alien coming into the United States
in violation of the next preceding section of this act.
The prohibition against the employment of aliens upon any public works
of the United States is in line with other legislation of a like
character. It is quite a different thing, however, to declare it a crime
for an alien to come regularly and habitually into the United States for
the purpose of obtaining work from private parties, if such alien
returns from time to time to a foreign country, and to constitute any
employment of such alien a criminal offense.
When we consider these provisions of the bill in connection with our
long northern frontier and the boundaries of our States and Territories,
often but an imaginary line separating them from the British dominions,
and recall the friendly intercourse between the people who are neighbors
on either side, the provisions of this bill affecting them must be
regarded as illiberal, narrow, and un-American.
The residents of these States and Territories have separate and especial
interests which in many cases make an interchange of labor between their
people and their alien neighbors most important, frequently with the
advantage largely in favor of our citizens. This suggests the
inexpediency of Federal interference with these conditions when not
necessary to the correction of a substantial evil, affecting the general
welfare. Such unfriendly legislation as is proposed could hardly fail to
provoke retaliatory measures, to the injury of many of our citizens who
now find employment on adjoining foreign soil.
The uncertainty of construction to which the language of these
provisions is subject is a serious objection to a statute which
describes a crime. An important element in the offense sought to be
created by these sections is the coming "regularly or habitually into
the United States." These words are impossible of definite and certain
construction. The same may be said of the equally important words
"returning from time to time to a foreign country."
A careful examination of this bill has convinced me that for the reasons
given and others not specifically stated its provisions are
unnecessarily harsh and oppressive, and that its defects in construction
would cause vexation and its operation would result in harm to our
citizens.
GROVER CLEVELAND.
POCKET VETOES.
["An act granting a pension to Mrs. Mary Gould Carr, widow of the late
Brigadier and Brevet Major General Joseph B. Carr, United States
Volunteers, deceased."]
DECEMBER 30, 1896.
This bill was presented to me on the 16th day of December, 1896.
Congress, pursuant to a concurrent resolution adopted by both Houses of
Congress, adjourned from the 22d day of December, 1896, to January 5,
1897. I have not approved the bill.
GROVER CLEVELAND.
"An act to increase the pension of Caroline A. Hough, widow of
Brigadier-General John Hough."
DECEMBER 31, 1896.
This bill was presented to me on the 16th day of December, 1896.
Congress, pursuant to a concurrent resolution adopted by both Houses of
Congress, adjourned from the 22d day of December, 1896, to January 5,
1897. I have not approved the bill.
GROVER CLEVELAND.
PROCLAMATIONS.
BY THE PRESIDENT OF THE UNITED STATES OF AMERICA.
A PROCLAMATION.
Whereas an act of Congress entitled "An act to adopt regulations for
preventing collisions at sea" was approved August 19, 1890, the said act
being in the following words:
_Be it enacted by the Senate and House of Representatives of the
United States of America in Congress assembled_, That the following
regulations for preventing collisions at sea shall be followed by all
public and private vessels of the United States upon the high seas and
in all waters connected therewith navigable by seagoing vessels:
PRELIMINARY.
In the following rules every steam vessel which is under sail and not
under steam is to be considered a sailing vessel, and every vessel under
steam, whether under sail or not, is to be considered a steam vessel.
The words "steam vessel" shall include any vessel propelled by
machinery.
A vessel is "under way" within the meaning of these rules when she is
not at anchor or made fast to the shore or aground.
RULES CONCERNING LIGHTS, ETC.
The word "visible" in these rules when applied to lights shall mean
visible on a dark night with a clear atmosphere.
ARTICLE 1. The rules concerning lights shall be complied with in all
weathers from sunset to sunrise, and during such time no other lights
which may be mistaken for the prescribed lights shall be exhibited.
ART. 2. A steam vessel when under way shall carry--
(_a_) On or in front of the foremast, or if a vessel without a
foremast, then in the fore part of the vessel, at a height above the
hull of not less than 20 feet, and if the breadth of the vessel exceeds
20 feet, then at a height above the hull not less than such breadth, so,
however, that the light need not be carried at a greater height above
the hull than 40 feet, a bright white light so constructed as to show an
unbroken light over an arc of the horizon of 20 points of the compass,
so fixed as to throw the light 10 points on each side of the
vessel--namely, from right ahead to 2 points abaft the beam on either
side--and of such a character as to be visible at a distance of at least
5 miles.
(_b_) On the starboard side a green light so constructed as to show
an unbroken light over an arc of the horizon of 10 points of the
compass, so fixed as to throw the light from right ahead to 2 points
abaft the beam on the starboard side, and of such a character as to be
visible at a distance of at least 2 miles.
(_c_) On the port side a red light so constructed as to show an
unbroken light over an arc of the horizon of 10 points of the compass,
so fixed as to throw the light from right ahead to 2 points abaft the
beam on the port side, and of such a character as to be visible at a
distance of at least 2 miles.
(_d_) The said green and red side lights shall be fitted with
inboard screens projecting at least 3 feet forward from the light, so as
to prevent these lights from being seen across the bow.
(_e_) A steam vessel when under way may carry an additional white
light similar in construction to the light mentioned in subdivision
(_a_). These two lights shall be so placed in line with the keel
that one shall be at least 15 feet higher than the other, and in such a
position with reference to each other that the lower light shall be
forward of the upper one. The vertical distance between these lights
shall be less than the horizontal distance.
ART. 3. A steam vessel when towing another vessel shall, in addition to
her side lights, carry two bright white lights in a vertical line one
over the other, not less than 6 feet apart, and when towing more than
one vessel shall carry an additional bright white light 6 feet above or
below such light, if the length of the tow measuring from the stern of
the towing vessel to the stern of the last vessel towed exceeds 600
feet. Each of these lights shall be of the same construction and
character and shall be carried in the same position as the white light
mentioned in article 2 (_a_), excepting the additional light, which
may be carried at a height of not less than 14 feet above the hull.
Such steam vessel may carry a small white light abaft the funnel or
aftermast for the vessel towed to steer by, but such light shall not be
visible forward of the beam.
ART. 4. (_a_) A vessel which from any accident is not under command
shall carry at the same height as a white light mentioned in article 2
(_a_), where they can best be seen, and if a steam vessel in lieu
of that light, two red lights in a vertical line one over the other, not
less than 6 feet apart, and of such a character as to be visible all
around the horizon at a distance of at least 2 miles, and shall by day
carry in a vertical line one over the other, not less than 6 feet apart,
where they can best be seen, two black balls or shapes each 2 feet in
diameter.
(_b_) A vessel employed in laying or in picking up a telegraph
cable shall carry in the same position as the white light mentioned in
articles (_a_), and if a steam vessel in lieu of that light, three
lights in a vertical line one over the other, not less than 6 feet
apart. The highest and lowest of these lights shall be red and the
middle light shall be white, and they shall be of such a character as to
be visible all around the horizon at a distance of at least 2 miles. By
day she shall carry in a vertical line one over the other, not less than
6 feet apart, where they can best be seen, three shapes not less than 2
feet in diameter, of which the highest and lowest shall be globular in
shape and red in color and the middle one diamond in shape and white.
(_c_) The vessels referred to in this article when not making way
through the water shall not carry the side lights, but when making way
shall carry them.
(_d_) The lights and shapes required to be shown by this article
are to be taken by other vessels as signals that the vessel showing them
is not under command and can not, therefore, get out of the way.
These signals are not signals of vessels in distress and requiring
assistance. Such signals are contained in article 31.
ART. 5. A sailing vessel under way and any vessel being towed shall
carry the same lights as are prescribed by article 2 for a steam vessel
under way, with the exception of the white lights mentioned therein,
which they shall never carry.
ART. 6. Whenever, as in the case of small vessels under way during bad
weather, the green and red side lights can not be fixed, these lights
shall be kept at hand, lighted and ready for use, and shall on the
approach of or to other vessels be exhibited on their respective sides,
in sufficient time to prevent collision, in such manner as to make them
most visible and so that the green light shall not be seen on the port
side nor the red light on the starboard side, nor, if practicable, more
than 2 points abaft the beam on their respective sides.
To make the use of these portable lights more certain and easy the
lanterns containing them shall each be painted outside with the color of
the light they respectively contain and shall be provided with proper
screens.
ART. 7. Steam vessels of less than 40 and vessels under oars or sails of
less than 20 tons gross tonnage, respectively, when under way shall not
be obliged to carry the lights mentioned in article 2 (_a_),
(_b_), and (_c_), but if they do not carry them they shall be
provided with the following lights:
First. Steam vessels of less than 40 tons shall carry--
(_a_) In the fore part of the vessel or on or in front of the
funnel, where it can best be seen, and at a height above the gunwale of
not less than 9 feet, a bright white light constructed and fixed as
prescribed in article 2 (_a_) and of such a character as to be
visible at a distance of at least 2 miles.
(_b_) Green and red side lights constructed and fixed as prescribed
in article 2 (_b_) and (_c_) and of such a character as to be
visible at a distance of at least 1 mile, or a combined lantern showing
a green light and a red light from right ahead to 2 points abaft the
beam on their respective sides. Such lanterns shall be carried not less
than 3 feet below the white light.
Second. Small steamboats, such as are carried by seagoing vessels, may
carry the white light at a less height than 9 feet above the gunwale,
but it shall be carried above the combined lantern mentioned in
subdivision 1 (_b_).
Third. Vessels under oars or sails of leas than 20 tons shall have ready
at hand a lantern with a green glass on one side and a red glass on the
other, which on the approach of or to other vessels shall be exhibited,
in sufficient time to prevent collision, so that the green light shall
not be seen on the port side nor the red light on the starboard side.
The vessels referred to in this article shall not be obliged to carry
the lights prescribed by article 4 (_a_) and article 11 last
paragraph.
ART. 8. Pilot vessels when engaged on their station on pilotage duty
shall not show the lights required for other vessels, but shall carry a
white light at the masthead, visible all around the horizon, and shall
also exhibit a flare-up light or flare-up lights at short intervals,
which shall never exceed fifteen minutes.
On the near approach of or to other vessels they shall have their side
lights lighted ready for use and shall flash or show them at short
intervals to indicate the direction in which they are heading; but the
green light shall not be shown on the port side nor the red light on the
starboard side.
A pilot vessel of such a class as to be obliged to go alongside of a
vessel to put a pilot on board may show the white light instead of
carrying it at the masthead, and may instead of the colored lights above
mentioned have at hand ready for use a lantern with a green glass on the
one side and a red glass on the other, to be used as prescribed above.
Pilot vessels when not engaged on their station on pilotage duty shall
carry lights similar to those of other vessels of their tonnage.
ART. 9. Fishing vessels and fishing boats when under way and when not
required by this article to carry or show the lights therein named shall
carry or show the lights prescribed for vessels of their tonnage under
way.
(_a_) Vessels and boats when fishing with drift nets shall exhibit
two white lights from any part of the vessel where they can best be
seen. Such lights shall be placed so that the vertical distance between
them shall be not less than 6 feet and not more than 10 feet, and so
that the horizontal distance between them measured in a line with the
keel shall be not less than 5 feet and not more than 10 feet. The lower
of these two lights shall be the more forward, and both of them shall be
of such a character as to show all around the horizon and to be visible
at a distance of not less than 3 miles.
(_b_) Vessels when engaged in trawling, by which is meant the
dragging of an apparatus along the bottom of the sea--
First. If steam vessels, shall carry in the same position as the white
light mentioned in article 2 (_a_) tricolored lantern so
constructed and fixed as to show a white light from right ahead to 2
points on each bow and a green light and a red light over an arc of the
horizon from 2 points on either bow to 2 points abaft the beam on the
starboard and port sides, respectively, and not less than 6 nor more
than 12 feet below the tricolored lantern a white light in a lantern so
constructed as to show a clear, uniform, and unbroken light all around
the horizon.
Second. If sailing vessels of 7 tons gross tonnage and upward, shall
carry a white light in a lantern so constructed as to show a clear,
uniform, and unbroken light all around the horizon, and shall also be
provided with a sufficient supply of red pyrotechnic lights, which shall
each burn for at least thirty seconds and shall be shown on the approach
of or to other vessels in sufficient time to prevent collision.
In the Mediterranean Sea the vessels referred to in subdivision
(_b_) 2 may use a flare-up light in lieu of a pyrotechnic light.
All lights mentioned in subdivision (_b_) 1 and 2 shall be visible
at a distance of at least 2 miles.
Third. If sailing vessels of less than 7 tons gross tonnage, shall not
be obliged to carry the white light mentioned in subdivision (_b_)
2 of this article, but if they do not carry such light they shall have
at hand, ready for use, a lantern showing a bright white light, which
shall on the approach of or to other vessels be exhibited where it can
best be seen in sufficient time to prevent collision; and they shall
also show a red pyrotechnic light, as prescribed in subdivision
(_b_) 2, or in lieu thereof a flare-up light.
(_c_) Vessels and boats when line fishing with their lines out and
attached to their lines, and when not at anchor or stationary, shall
carry the same lights as vessels fishing with drift nets.
(_d_) Fishing vessels and fishing boats may at any time use a
flare-up light in addition to the lights which they are by this article
required to carry and show. All flare-up lights exhibited by a vessel
when trawling or fishing with any kind of drag net shall be shown at the
after part of the vessel, excepting that if the vessel is hanging by the
stern to her fishing gear they shall be exhibited from the bow.
(_e_) Every fishing vessel and every boat when at anchor shall
exhibit a white light visible all around the horizon at a distance of at
least 1 mile.
(_f_) If a vessel or boat when fishing becomes stationary in
consequence of her gear getting fast to a rock or other obstruction, she
shall show the light and make the fog signal prescribed for a vessel at
anchor, respectively. (See article 15 (_d_), (_e_), and last
paragraph.)
(_g_) In fog, mist, falling snow, or heavy rain storms drift-net
vessels attached to their nets, and vessels when trawling, dredging, or
fishing with any kind of dragnet, and vessels line fishing with their
lines out shall, if of 20 tons gross tonnage or upward, respectively, at
intervals of not more than one minute make a blast--if steam vessels,
with the whistle or siren, and if sailing vessels, with the fog
horn--each blast to be followed by ringing the bell.
(_h_) Sailing vessels or boats fishing with nets or lines or trawls
when under way shall in daytime indicate their occupation to an
approaching vessel by displaying a basket or other efficient signal
where it can best be seen.
The vessels referred to in this article shall not be obliged to carry
the light prescribed by article 4 (_a_) and article 11, last
paragraph.
ART. 10. A vessel which is being overtaken by another shall show from
her stern to such last-mentioned vessel a white light or a flare-up
light.
The white light required to be shown by this article may be fixed and
carried in a lantern, but in such case the lantern shall be so
constructed, fitted, and screened that it shall throw an unbroken light
over an arc of the horizon of 12 points of the compass--namely, for 6
points from right aft on each side of the vessel--so as to be visible at
a distance of at least 1 mile. Such light shall be carried as nearly as
practicable on the same level as the side lights.
ART. 11. A vessel under 150 feet in length when at anchor shall carry
forward, where it can best be seen, but at a height not exceeding 20
feet above the hull, a white light in a lantern so constructed as to
show a clear, uniform, and unbroken light visible all around the horizon
at a distance of at least 1 mile.
A vessel of 150 feet or upward in length when at anchor shall carry in
the forward part of the vessel, at a height of not less than 20 and not
exceeding 40 feet above the hull, one such light, and at or near the
stern of the vessel, and at such a height that it shall be not less than
15 feet lower than the forward light, another such light.
The length of a vessel shall be deemed to be the length appearing in her
certificate of registry.
A vessel aground in or near a fairway shall carry the above light or
lights and the two red lights prescribed by article 4 (_a_).
ART. 12. Every vessel may, if necessary in order to attract attention,
in addition to the lights which she is by these rules required to carry,
show a flare-up light or use any detonating signal that can not be
mistaken for a distress signal.
ART. 13. Nothing in these rules shall interfere with the operation of
any special rules made by the government of any nation with respect to
additional station and signal lights for two or more ships of war or
for vessels sailing under convoy, or with the exhibition of recognition
signals adopted by ship owners, which have been authorized by their
respective governments and duly registered and published.
ART. 14. A steam vessel proceeding under sail only, but having her
funnel up, shall carry in daytime forward, where it can best be seen,
one black ball or shape 2 feet in diameter.
SOUND SIGNALS FOR FOG, ETC.
ART. 15. All signals prescribed by this article for vessels under way
shall be given--
1. By "steam vessels," on the whistle or siren.
2. By "sailing vessels" and "vessels towed," on the fog horn.
The words "prolonged blast" used in this article shall mean a blast of
from four to six seconds' duration.
A steam vessel shall be provided with an efficient whistle or siren,
sounded by steam or by some substitute for steam, so placed that the
sound may not be intercepted by any obstruction, and with an efficient
fog horn, to be sounded by mechanical means, and also with an efficient
bell. (In all cases where the rules require a bell to be used a drum may
be substituted on board Turkish vessels or a gong where such articles
are used on board small seagoing vessels.) A sailing vessel of 20 tons
gross tonnage or upward shall be provided with a similar fog horn and
bell.
In fog, mist, falling snow, or heavy rain storms, whether by day or
night, the signals described in this article shall be used as follows,
viz:
(_a_) A steam vessel having way upon her shall sound at intervals
of not more than two minutes a prolonged blast.
(_b_) A steam vessel under way, but stopped and having no way upon
her, shall sound at intervals of not more than two minutes two prolonged
blasts, with an interval of about one second between them.
(_c_) A sailing vessel under way shall sound at intervals of not
more than one minute, when on the starboard tack one blast, when on the
port tack two blasts in succession, and when with the wind abaft the
beam three blasts in succession.
(_d_) A vessel when at anchor shall at intervals of not more than
one minute ring the bell rapidly for about five seconds.
(_e_) A vessel at anchor at sea, when not in ordinary anchorage
ground and when in such a position as to be an obstruction to vessels
under way, shall sound, if a steam vessel, at intervals of not more than
two minutes, two prolonged blasts with her whistle or siren, followed by
ringing her bell, or if a sailing vessel, at intervals of not more than
one minute, two blasts with her fog horn, followed by ringing her bell.
(_f_) A vessel when towing shall, instead of the signals prescribed
in subdivisions (_a_) and (_c_) of this article, at intervals
of not more than two minutes sound three blasts in succession, namely,
one prolonged blast followed by two short blasts. A vessel towed may
give this signal, and she shall not give any other.
(_g_) A steam vessel wishing to indicate to another "The way is off
my vessel; you may feel your way past me" may sound three blasts in
succession--namely, short, long, short--with intervals of about one
second between them.
(_h_) A vessel employed in laying or picking up a telegraph cable
shall on hearing the fog signal of an approaching vessel sound in answer
three prolonged blasts in succession.
(_i_) A vessel under way which is unable to get out of the way of
an approaching vessel through being not under command or unable to
maneuver as required by these rules shall on hearing the fog signal of
an approaching vessel sound in answer four short blasts in succession.
Sailing vessels and boats of less than 20 tons gross tonnage shall not
be obliged to give the above-mentioned signals, but if they do not they
shall make some other efficient sound signal at intervals of not more
than one minute.
SPEED OF SHIPS TO BE MODERATE IN FOG, ETC.
ART. 16. Every vessel shall in a fog, mist, falling snow, or heavy rain
storms go at a moderate speed, having careful regard to the existing
circumstances and conditions.
A steam vessel hearing, apparently forward of her beam, the fog signal
of a vessel the position of which is not ascertained shall, so far as
the circumstances of the case admit, stop her engines and then navigate
with caution until danger of collision is over.
STEERING AND SAILING RULES.
PRELIMINARY.--RISK OF COLLISION.
Risk of collision can, when circumstances permit, be ascertained by
carefully watching the compass bearing of an approaching vessel. If the
bearing does not appreciably change, such risk should be deemed to
exist.
ART. 17. When two sailing vessels are approaching one another so as to
involve risk of collision, one of them shall keep out of the way of the
other as follows, namely:
(_a_) A vessel which is running free shall keep out of the way of a
vessel which is closehauled.
(_b_) A vessel which is closehauled on the port tack shall keep out
of the way of a vessel which is closehauled on the starboard tack.
(_c_) When both are running free with the wind on different sides,
the vessel which has the wind on the port side shall keep out of the way
of the other.
(_d_) When both are running free with the wind on the same side,
the vessel which is to the windward shall keep out of the way of the
vessel which is to leeward.
(_e_) A vessel which has the wind aft shall keep out of the way of
the other vessel.
ART. 18. When two steam vessels are meeting end on or nearly end on, so
as to involve risk of collision, each shall alter her course to
starboard, so that each may pass on the port side of the other.
This article only applies to cases where vessels are meeting end on or
nearly end on in such a manner as to involve risk of collision, and does
not apply to two vessels which must, if both keep on their respective
courses, pass clear of each other.
The only cases to which it does apply are when each of the two vessels
is end on or nearly end on to the other; in other words, to cases in
which by day each vessel sees the masts of the other in a line or nearly
in a line with her own, and by night to cases in which each vessel is in
such a position as to see both the side lights of the other.